22 PACIFIC ECONOMIC BULLETIN South Pacific Regional Environmental Programme: implications of Agenda 21 for the Pacific Vili A. Fuavao Vili Fuavao has been the Director of the South Pacific Regional Environment Programme (SPREP) since 1990. He guided SPREP through a period of rapid growth, its relocation from New Caledonia to Western Samoa, and its establishment as a fully autonomous regional organisation. Formerly, he was Senior Lecturer in Chemistry at the University of the South Pacific, Fiji. The South Pacific is unique, not because its geographical, biological, sociological and economic characteristics are found nowhere else in the world, but because the combination of these characteristics in the region is special. The region is characterised by a high degree of ecosystem and species diversity, an extraordinary level of endemicity, a high degree of economic and cultural dependence on the natural environment, vulnerability to a wide range of natural disasters, a diversity of cultures and languages, and traditional practices and customs which are central to the close and special relationship of Pacific people with their environment. Though scattered, the island countries of the South Pacific are a close-knit family. The cooperative approach to regional development is an extension of homegrown processes of government which have traditionally placed a high value on cooperation and the consensus approach to problem resolution. The primary objective of this paper is to summarise the United Nations Conference on Environment and Development (UNCED) Agenda 21 and outline its implications for the implementation of environment programs in the Pacific region. Agenda 21 Agenda 21 is a global action strategy for implementing sustainable development. It was endorsed by governments at the UNCED along with the Rio Declaration on Environment and Development a statement of principles to guide governments and individuals in the implementation of sustainable development
IMPLICATIONS OF AGENDA 21 FOR THE PACIFIC 23 Statement of Principles for a Global Consensus on the Management, Conservation and Sustainable Development of Forests a statement of principles relating to the entire range of environmental and development issues for all forest types. Two conventions also emerged from UNCED the Framework Convention on Climate Change and the Convention on Biological Diversity. These conventions are not yet in force although both have over 100 signatories. All of these agreements have implications for the management of the environment and sustainable development in the South Pacific. However, Agenda 21 contains the most specific listing of objectives and activities relevant to the implementation of environment programs in the region. Agenda 21 aims to address the pressing problems of today and also aims at preparing the world for the challenges of the next century. It is not, strictly speaking, a legally binding document, however, it reflects global consensus and political commitment at the highest level. It will be implemented according to the capacities and priorities of the various actors. Containing over 500 pages of objectives and activities in 40 chapters, Agenda 21 is divided into four sections: Social and Economic Dimensions; Conservation and Management of Resources for Development; Strengthening the Role of Major Groups; and Means of Implementation. All chapters of Agenda 21 will influence activities to protect and manage the environment of the South Pacific. However, certain activities will require special attention in the region. Social and economic dimensions This section of Agenda 21 addresses trade and economic policies for sustainable development, population issues, unsustainable patterns of consumption and production, health, human settlement issues and the integration of environmental imperatives into developmental decision making. A number of issues highlighted in this section warrant special attention in the Pacific region, including the implications of trade liberalisation and the interactions between environment and trade the interactions between population and environment and the incorporation of demographic factors and objectives into national policies and plans the progressive integration of environmental issues into decision making and development planning. Conservation and management of resources for development Most of the region s environment projects and programs traditionally fall within this section of Agenda 21. These include the conservation of biological diversity, climate change, environmental impact assessment, preparation of national environmental management strategies, coastal zone management and the prevention and control of pollution. This section of Agenda 21 re-emphasises the need for action in all these areas. Recognition of the special concerns and characteristics of small islands is found in Chapter 17 of Agenda 21. The negotiation of this text was an important achievement for all island countries. Entitled Sustainable development of small islands, this program area contains specific activities related to management, human resources, capacity building and regional cooperation, aimed at advancing sustainable development in the region. In broad terms, this program area commits governments to studying development and environment interactions of islands
24 PACIFIC ECONOMIC BULLETIN determining and monitoring the carrying capacity of small islands preparing medium and long-term sustainable development plans developing appropriate coastal management techniques reviewing and reforming institutional arrangements implementing sustainable development plans designing and implementing rational response strategies to address climate change and sea level rise promoting environmentally sound technology. To continue the process of international cooperation on the sustainable development of islands, this program area calls for a Global Conference of the Sustainable Development of Small Islands Developing States in Barbados, April 1994. A Pacific regional meeting was held in Vanuatu in June 1993 to prepare for the Barbados conference. Strengthening the role of major groups This section of Agenda 21 focuses on strengthening the role of major groups in implementing sustainable development, including women, youth, business, local government and non-government organisations. Although the role of these groups has been recognised, it is only in recent years that their participation in sustainable development has been actively sought. Activities proposed in Agenda 21 will need to be carefully considered by governments. Means of implementation The final section of Agenda 21 includes the areas of education, information and awareness. These areas have been identified by the region as fundamental to environmental protection and sustainable development. The issue of capacity building is also presented in this section and will need to be addressed if lasting solutions to environmental problems in the region are to be found. The new financial and institutional arrangements for the implementation of Agenda 21 are also presented. Many elements of the UN system, intergovernmental organisations and the donor community were given roles to play in the implementation of Agenda 21. However, the single most important change to institutional arrangements was the establishment of the Commission on Sustainable Development. The Commission will have a membership of 53 countries and a mandate to monitor the implementation of Agenda 21. A clear relationship needs to be established between the Pacific region and this new watch-dog of sustainable development. The final decisions of UNCED relating to financial resources were the hardest to achieve. There are four major areas where funds for the implementation of Agenda 21 may be found. The Global Environment Facility (GEF) is designed to achieve global environmental benefits and should cover the agreed incremental costs of relevant activities under Agenda 21. The Facility is to be restructured to ensure transparency, universal participation, democratic decision-making, predictability of funds and their disbursement without introducing new conditions on recipient countries. The International Development Association (IDA) has been directed to give special consideration to assisting poorer countries meet their Agenda 21 sustainable development objectives. This would involve reallocation of some of the World Bank s net income to national environmental initiatives through the IDA. Overseas Development Assistance (ODA). Recognising that substantial new
IMPLICATIONS OF AGENDA 21 FOR THE PACIFIC 25 and additional funding will be required for sustainable development, the UN target of 0.7 per cent of GNP for ODA has been reaffirmed by industrial countries. They have agreed to augment their aid programs in order to reach that target as soon as possible to ensure prompt and effective implementation of Agenda 21. Regional and subregional Development Banks should play an increased and more effective role in providing resources on concessional or other favourable terms needed to implement Agenda 21. Other decisions concerning financial arrangements were made covering specialised agencies, UN bodies particularly the United Nations Development Programme (UNDP) and the United Nations Environment Programme (UNEP) international organisations, multilateral institutions, bilateral assistance, debt relief and private funding. UNDP responded quickly to UNCED and established a funding mechanism called Capacity 21 aimed at assisting the implementation of Agenda 21 through strengthening national capabilities. Implications for the region SPREP Agenda 21 is a broad and comprehensive strategy for sustainable development. One point, however, is continually stressed that environmental considerations need to be incorporated effectively into the development process. This point and other proposals of Agenda 21 now need to be turned into specific activities relevant to Pacific island countries a task for all organisations and countries of this region. The South Pacific Regional Environment Programme (SPREP) is working through its now well established regional programs and projects and through a small grants scheme to assist countries with short-term or immediate environmental concerns. Regional programs At the direction of its members, SPREP has developed a number of activities on the basis of national priorities that are consistent with the implementation of Agenda 21 (Table 1). SPREP Small Grant Scheme In 1989, SPREP, with financial assistance from the United Nations Environment Programme (UNEP) established a scheme enabling SPREP to respond quickly to Pacific island country requests for assistance concerning environment impact assessment and marine pollution. The scheme successfully used a team of experts ready to visit countries on short notice as well as in-country experts to undertake the assessments. In 1991, the SPREP Intergovernmental Meeting at the Ministerial Level decided to establish a SPREP Small Grant Scheme and to extend the assessment scheme to all aspects of environment. The main thrust of the small grant scheme is to respond quickly to country requests on issues not covered under its annual program. The scheme has funds under the discretion of the director to respond to requests without delay. The Australian International Development Aid Bureau (AIDAB) has generously contributed to the scheme and it is anticipated that SPREP members will set aside part of their annual contribution to SPREP for small grants. National action The new institutional and financial arrangements developed in Agenda 21 suggest the need for countries to strengthening existing links with nongovernment organisations and other major groups, to coordinate activities of governments, regional and international
26 PACIFIC ECONOMIC BULLETIN organisations and non-government organisations and, to participate at appropriate levels in the Commission on Sustainable Development. To mobilise effectively the new funds available for the implementation of sustainable development and Agenda 21, countries should develop national, multi-country and regional programs, based on national priorities, for potential funding by the Global Environment Facility, International Development Association, UN system (including Capacity 21), or from Overseas Development Assistance promote dialogue with the Global Environment Facility, International Development Association and other donors concerning implementation of Agenda 21 in the South Pacific prioritise and implement projects developed by national environmental management strategies or their equivalent. At an international level, the regional cooperation demonstrated in preparation for UNCED will be valuable in a range of negotiations on global environmental issues over the coming year. These negotiations will include preparations for the Global Conference on the Sustainable Development of Small Island Developing States in Barbados, April 1994 meetings of the Contracting Parties to both the Climate Change and Biodiversity conventions which will consider the development of protocols to give effect to these conventions preparations for international conferences on coastal zone management, land based sources of marine pollution, population and development, and the management of high seas living marine resources, in particular, highly migratory species and straddling stocks. National environment management strategies In the late 1980s Pacific countries became increasingly aware of the need for a strategy for ensuring that their environments were managed on a sustainable basis and that important areas and resources were protected. SPREP, on behalf of Pacific countries, approached a number of donor agencies to assist with this task. In 1990 the Asian Development Bank and the World Conservation Union agreed to provide technical and financial assistance to develop national environmental management strategies in five Pacific countries. The United Nations Development Programme (UNDP) agreed to fund identical projects in seven further Pacific countries. AIDAB provided SPREP with resources to assist in the preparation of a strategy for Vanuatu, whereas Fiji and Papua New Guinea received direct assistance from the Asian Development Bank and the World Bank, respectively. The projects have the following objectives to develop national environment management strategies for the Cook Islands, Federated States of Micronesia, Kiribati, Marshall Islands, Nauru, Niue, Palau, Solomon Islands, Tokelau, Tonga, Tuvalu, Vanuatu and Western Samoa to review the effectiveness of environmental and natural resource legislation in each of the above countries to implement relevant environment training in the above countries as well as in Fiji to strengthen the capabilities of SPREP and participating countries to achieve national and regional environment management goals to increase community awareness within participating countries of the need for environment protection.
IMPLICATIONS OF AGENDA 21 FOR THE PACIFIC 27 Table 1 Activities being implemented or developed within SPREP Chapter of Agenda 21 SPREP work program Chapter 2 International Trade and environment interactions cooperation to accelerate (proposed) sustainable development Chapter 5 Demographic SPREP/UNFPA Integrating population dynamics and sustainability and environment (to commence) Chapter 8 Integrating National environment management environment and development strategies (in progress) in decision-making Strengthening environment impact assessment capacity (in progress) Valuation of natural resources and the environment and economic instruments for environmental protection (proposed) Environmental legislation for sustainable development (proposed) Chapter 9 Protection of Climate change program (in the atmosphere progress) Chapter 11 Combatting Inventory of deforestation and deforestation land degradation (in progress) Chapter 15 Conservation of South Pacific Biodiversity biological resources Conservation Project (to commence) Regional species conservation (in progress) Inventory of customary/traditional practices which are/are not conducive to sustainable development (in progress) Chapter 17 Protection of Integrated coastal planning (in the oceans and seas progress) Preparations for the Global Conference on the Sustainable Development of Small Island Developing States (in progress) Strategy for the protection of marine resources and oil spill contingency planning in the Pacific (in progress)
28 PACIFIC ECONOMIC BULLETIN Table 1 continued Chapter of Agenda 21 SPREP work program Chapters 19-22: Environmentally sound management of toxic chemicals, hazardous, solid and radioactive wastes South Pacific waste and pollution prevention program (in progress) Pesticide and heavy metal monitoring program for the South Pacific (in progress) Chapters 24-32: Role of The activities of major groups groups have been integrated, where appropriate, within specific projects, in particular, those related to information and public awareness campaigns. The capacity of non-government organisations is also being actively strengthened as part of the National Environment Management Strategies process. Chapter 36: Promoting Curriculum development support and education, public teacher training (in progress) awareness and training Public awareness campaign (in progress) Long-term training/educational attachments to relevant institutions (proposed) Chapter 37: National Institutional strengthening for and international sustainable development mechanisms for capacity (proposed) building SPREP Small Grant Scheme (ongoing) Chapter 38: International Strengthening of the South Pacific institutional arrangements Regional Environment Programme (in progress) Chapter 39: International Ratification of relevant interlegal instruments and national conventions (proposed) mechanisms Chapter 40: Information for Pacific environmental and decision-making management information system (in progress) UNEP-GRID regional database centre (in progress)
IMPLICATIONS OF AGENDA 21 FOR THE PACIFIC 29 The following principles have guided the preparation and implementation of the national environment management strategies. Practicality. The emphasis has been on practical recommendations which relate to priority environmental issues in each country. Ownership. National environment management strategies must belong to the government and people of each country. They must not be imposed from outside. Catalyst. The strategies will be used as catalysts for encouraging community awareness and support for environmental management. Sustainable development. The strategies will link environmental management to economic development in each country. There will be an emphasis on convincing political and government leaders that sound environment management practices are consistent with sound economic development. Partnership. Activities associated with the projects will be undertaken in partnership with international bodies, nongovernment organisations and other relevant parties. Outcomes The key outcome of the project is the development of national environment management strategies, or the equivalent, in thirteen Pacific countries. A national environment management strategy or equivalent has been completed in Cook Islands, Federated States of Micronesia, Fiji, Republic of the Marshall Islands, Solomon Islands, Tonga and Western Samoa. Strategies are in preparation in Kiribati, Nauru, Niue, Palau, Papua New Guinea, Tokelau, Tuvalu and Vanuatu. The development of the national environment management strategies in each country has been guided by a high level task-force, comprising senior representatives of environmental and economic development agencies. Preparation has involved three broad stages: preparation of background reports, presentation of the reports to a national seminar for comment and correction, and the subsequent preparation of the strategy. A wide range of issues have been raised by the strategies, reflecting the priorities of each country. However, there have been a number of issues common to all countries. These include the need to increase awareness of environmental issues at all levels within the community the need to improve the management of solid waste and sewage the need to integrate environmental and economic factors at both a policy and operational level, including the need to establish appropriately staffed and managed environment units the need to manage natural resources in a sustainable manner the need to ensure that coastal resources are managed with special care. Each national environment management strategy outlines practical, fully costed programs to address the key environmental issues in each country. The advantage of such a document is that it clarifies the policy position of each country on specific environmental issues. Each strategy also provides a focus for donor agencies in determining their priorities for the provision of financial and technical assistance to Pacific countries in environmental areas. One of the key objectives of the projects is to review environmental legislation in each participating country. A review of environmental legislation is being carried out to identify the status of existing legislation and to assess critically its relevance to current environmental issues in each country. Final legal reviews have
30 PACIFIC ECONOMIC BULLETIN now been completed for Cook Islands, Federated States of Micronesia, Kingdom of Tonga, Palau, Republic of the Marshall Islands and Solomon Islands. Draft legal reviews are either being prepared or have been prepared for Kiribati, Tokelau, Tuvalu, Nauru, Niue and Western Samoa. Each legal review is a comprehensive statement of the environmental law for that country. Although not all legal reviews have been finalised at this stage, it is possible to make some broad observations. First, the reviews have indicated that a considerable volume of law exists in relation to the management of natural resources of Pacific countries. Few countries, however, have consolidated environmental legislation, although many are progressing towards that objective. Second, existing laws have had varying success in addressing environmental concerns. The reasons for this differ, however, in all cases there is a need for greater community awareness of what environmental legislation actually is and why it is necessary. Third, there appears to be greater scope for integration of traditional law with contemporary environmental legislation. Any environmental legislation developed in Pacific countries must be tailored to the unique needs and circumstances and traditions in each country. Inputs from the national environmental management strategies were combined with the inputs available from the SPREP Environmental Impact Assessment Programme (funded largely through the United Nations Environment Programme and the Australian government) to implement a comprehensive program of Environmental Impact Assessment training in Pacific countries in 1992 and 1993. Training was conducted at two levels. First, a one-day seminar for senior officials, which aimed to raise the awareness of the value of Environmental Impact Assessments amongst senior government officials. Second, a three to four-day technical training workshop, focusing on the practical use of Environmental Impact Assessments and the development of skills, aimed at practitioners in the environmental management area. A large number of specific projects have also been implemented. The most significant policy initiative is the integration of the national environment management strategies with the SPREP Work Programme process. The 1992 SPREP Intergovernmental Meeting recommended that the strategies for each country would, in future, be the key guiding document for the development of the SPREP Work Programme. The national environment management strategies projects have achieved much in the field of environmental management in Pacific countries. However, they are one off projects and it is important that the momentum developed in participating countries be maintained. To date, Pacific governments have displayed a considerable level of enthusiasm in identifying the key environmental issues they face and what should be done about them. The next phase of the project must aim to ensure that specific programs are implemented. Recommendations to ensure that the momentum is continued include that a clear national environment management implementation strategy and schedule be developed, at both a regional and national level that national environment management strategies be recognised by countries and donors as the key documents for the planning and implementation of environmental programs that countries actively implement projects and recommendations identified in their national environment management strategies, particularly in relation to institutional strengthening that relevant donor agencies be encouraged to use national environment management strategies in the formulation
IMPLICATIONS OF AGENDA 21 FOR THE PACIFIC 31 of specific country and regional assistance programs that interaction and effective coordination occur between countries and donors in relation to the implementation of strategies that national environment management strategies become the basis for the development of the SPREP work program, as directed by the 1992 SPREP Intergovernmental Meeting that the operation of existing Environment and Sustainable Development Task Forces continue and be given appropriate levels of support that adequately resourced environmental agencies be established in each Pacific country. The national environment management projects represent a very positive step forward for the Pacific countries. The groundwork has been laid for future sustainable development activities. However, it is essential that the momentum is maintained and that the work to date is built on. Future implications of Agenda 21 A considerable investment has been made by the Pacific region and its partners in sustainable development. The region s leaders have demonstrated a commitment to sustainable development at the national, regional and international levels. The implications of UNCED Agenda 21 for the countries and development partners of the region are considerable and will undoubtedly affect the delivery of development assistance and the activities of those involved in sustainable development. At a regional level, projects and programs are in progress or proposed to address some of the key issues raised in Agenda 21. These activities are based on common national priorities outlined in the national environment management strategies, which have demonstrated a need for common and coordinated solutions for which there are clear advantages in terms of administrative and financial efficiency. Progress in the implementation of the environment-related components of Agenda 21 is being undertaken or coordinated by SPREP, as mandated by the Pacific island countries. Other aspects of Agenda 21 relevant to the region are covered by the mandates given by the Pacific island countries to members of the South Pacific Organisations Coordinating Committee (SPOCC). Reference United Nations, 1992. Final Text of Agreements Negotiated by Governments at the United Nations Conference on Environment and Development, 3-14 June 1992, Rio de Janeiro, Brazil, United National Department of Public Information, New York.