As agreed in United Nations General Assembly Resolution 47/190 in 1992, in 1997 the UN will undertake a special five-year review of the effectiveness of national, regional and international implementation of Agenda 21 and other Earth Summit-related agreements and initiatives. In preparation for that review, a variety of intersessional meetings will be held involving governments, major groups as defined in Agenda 21 (including NGOs), UN officials and others interested in sustainable development. An important focus of those meetings will be to prepare for and contribute to two preparatory UN Commission on Sustainable Development meetings in New York - an intersessional CSD working group session from 24th February to 7th March 1997, and the fifth annual CSD meeting from 7-25 April 1997 - and the concluding, one-week "Special Session" of the UN General Assembly (UNGA) from 9-13 June 1997, also in New York.
The purpose of this paper is to try to highlight some of the priorities and concerns raised in a variety of reports available from a wide spectrum of NGOs and official sources. This may help to identify some of the critical areas which could be priorities for NGO activity in preparation for the General Assembly Special Session next year. This is by no means an exhaustive list, and the paper is a draft which is open for consideration and revision. Moreover, the perspectives reflected in the paper are not necessarily consistent, nor are they prioritised beyond general groupings. Rather, the authors sought to collect (and preserve) the diverse views of NGOs as circulated during the 1996 session of the CSD.
The CSD NGO Steering Committee was set up in 1994 to help facilitate non-governmental input to the intergovernmental process. It aims to enhance access for representatives of the nine Major Groups of civil society defined in Agenda 21 to the official deliberations and decisions taken at the CSD on the agreements reached at the Rio Summit and future priorities. The Steering Committee is also responsible for dissemination of information so that all interested NGOs worldwide receive all necessary information on the CSD.
I Priorities for the 1997 "Earth Summit" 5 Year Review
II NGO Involvement in the 5-year Review
A. Substantive Issues
We all need to be much clearer about our strategy to promote sustainable development.
Priority areas for the preparatory process for the General Assembly Special Session could include:
Although items above are listed separately, it should be recognized that many of these priorities are closely interconnected. One important task of the review will be to consider the links between the various Conventions, Commissions, Agenda 21 itself and other processes. It will also be necessary to address the ways in which principles established at the international level can be incorporated and codified in national legislative systems.
The integration of environment and development is the central element of Agenda 21. Eradication of poverty is a key issue for consideration, as is reduction of unemployment.
We need to address unsustainable patterns of production and consumption effectively and to ensure sustainable livelihoods. A guiding principle is to use environmental resources in a more efficient way whilst promoting sufficiency in their use. The proper valuation of natural resources and the internalization of environmental costs should be considered in this context.
Binding institutional steps should be taken towards comprehensive ecological tax reform, taking into account social factors. Examples include energy/CO2 tax and tax on non-renewable resources; and at the global level a tax on aeroplane fuel and charges on international marine transport. Environmentally harmful and socially inequitable production and consumption patterns continue to be encouraged by granting a large number of concealed and open subsidies; these should also be comprehensively reviewed at national and international levels.
The debate on government funding for sustainable development must be put back on track. Not only must overseas development assistance from donor countries reach 0.7% of GNP, as frequently stated, but it must be targeted to poverty eradication without being tied to the commercial interests of the donor countries. Market-based instruments, like environmental cost accounting, have been recommended by economists for some time as the most promising policy instrument to promote sustainability. It is time to test these hypotheses or to pursue other approaches. At the same time, private investment and its (often adverse) social and environmental impact must be subjected to critical analysis or regulation, as appropriate.
Instead of imposing environmental and employment regulations, governments are depending increasingly on voluntary corporate action and self-imposed restraint on the part of trade unions. Retreat by governments from control through regulation undermines the ability for citizens to use the democratic process to influence factors which affect their lives. Progress towards more equitable co-operation between Northern and Southern countries; the need to reduce the destructive capabilities of military activity and the industries which service it; and the importance of safeguarding local markets and industries are all objectives consistent with sustainable development. Each requires government intervention and constructive international collaboration.
Transnational Corporations (TNCs) engage in a vast range of activities affecting people and the environment, often playing one community or sector off against another to secure the lowest possible costs, whilst largely avoiding the consequences of their actions because their global scope places them virtually beyond the reach of national governmental control. It is time for governments and the UN system to take the necessary steps to make them accountable for their actions that impact adversely on sustainable development and local markets, and to reform world trade rules. Negotiations on a code of conduct for TNCs, including the control instruments necessary to ensure compliance are long overdue. Voluntary initiatives from the private sector should not obscure the fact that legally binding global regulation is needed. Close monitoring of TNC conduct is necessary with public, transparent and accountable mechanisms at all levels.
Discussion on innovative global financing mechanisms must move forward. An Intergovernmental Panel on Finance, with participation from independent experts, should be set up to examine the technical feasibility of various financing instruments and their anticipated impact. Specific proposals for implementing such instruments should be submitted to governments by the year 1999.
We must develop ways to improve the accountability of the inter- governmental process of the CSD. The responsibility for the perceived failure of the UN lies collectively with the governments which run it. They should engage in frank debate with all parties on the purpose of the UN and their long term priorities in using intergovernmental processes such as the CSD. Other relevant ministries, especially trade, finance and education, should be involved at the highest level in this debate, and in the intergovernmental processes dealing with sustainable development.
B. UN institutional matters
When considering the future of the CSD, attention should be paid to:
An appropriate and strategic mandate for the CSD should be developed which should include:
Two distinct concepts are critical for NGOs in their interactions with governments in preparation for the Special Session: political will on the one hand and the urgent need for action on the other. These do not always coincide, and it is the responsibility of NGOs to work in a variety of ways to raise the chances of action being taken on vital, but problematic issues as well as to promote constructive dialogue in areas where progress is more feasible. For example, there are aspects of Agenda 21 which have contradictions and thus undermine the implementation of sustainable development. NGOs should draw attention to these, and push for changes at the implementation stage.
The key to a relevant, effective and strategic CSD is an agenda- setting process that identifies issues and problems where there is a will to act. One possibility would be to link agenda-setting at the CSD to the national reporting process. The "national report process" should identify the problems the country has encountered in implementing Agenda 21 that require international co-operation to solve.
Economic globalization has created problems that require innovative solutions. Ways to ensure that global governance structures address these problems should be pursued. Co- ordination between agencies of the UN system on issues of sustainable development requires further attention, especially the ways in which the international financial institutions (IFIs) and the World Trade Organization (WTO) can be brought to participate more fully in such processes.A review of the work of the Inter Agency Committee on Sustainable Development (IACSD) and the Secretary General's High Level Advisory Board could be initiated. The Task Manager system is now playing an important role in actively involving other UN agencies and bodies. The IACSD provides a useful service for the Advisory Committee on Co- ordination, and also acts as a forum where the different Task Managers can come together to discuss their work on sustainable development. Further consideration should be given to ways in which this can lead to effective action on issues requiring co- operation.
While discussions on the social/environment nexus with economics proceed in the IFIs and the WTO, the UN system should take the lead in the debates and co-ordination. As envisaged in the UN Charter, the UN should be the centre for the political co-ordination of development issues. The CSD High Level Segment could accordingly be co-ordinated with the political levels of other UN Commissions, the financial institutions and the WTO.
The relations between ECOSOC Commissions addressing issues relevant to sustainable development is also important. ECOSOC this year will review the work programmes of all such Commissions and examine ways to achieve greater co-ordination. Practical proposals to enhance their work include:
There is inadequate ownership of the decisions taken at the CSD, particularly by those in national governments with principal responsibility for the issues addressed.
Governments claim a lack of resources as a justification for failure to implement some of the fundamental parts of the action plan contained in Agenda 21. However, the problem is not a shortage of money. An important task for the UN is to engage all stakeholders in the planning process so when the plan is finished civil society wants to invest in and implement it because it is their agenda. Where financial assistance is required, the commitments under Agenda 21 should be honoured.
C. National implementation
More direct channels need to be developed to ensure that the officials responsible for national level implementation of agreements reached at the CSD are aware of decisions taken and the ways in which these relate to their responsibilities. These channels should also work the other way - input from such officials should be sought in formulating national reports to the CSD. This will require more focused reporting, and could be a means to generate greater ownership of the process and decisions taken in the CSD at the national level.
In their current form the national reports required of governments on efforts to implement Agenda 21 do not exert sufficient pressure on them to place a higher priority on implementation and monitoring. National reports should concentrate on less topics, which should be more strategically important. They could focus on areas where governments feel international co-operation is necessary.
The establishment of national UN focal points may be helpful in moving the discussion from international to national level. In many countries there are already UN related NGO networks, United Nations Associations, national committees and offices for the UN and for bodies such as UNDP and UNEP. Ways in which such existing channels could be used more effectively to spread awareness and engagement in national processes should be pursued. This could entail production of guidelines and practical information booklets as well as encouraging dialogue between such organizations. The role the UN Non-Government Liaison Service plays at this level could be further strengthened and expanded.
In many countries, local agenda 21 has been a valuable tool in implementing the recommendations of UNCED. It establishes a clear link between the local and the global level. The international dimension added to local policy-making is important in helping to shift the focus towards policies which emphasize co-operation between communities. In many developing countries, community efforts at sustainable development already exist and these should be strengthened. They can also contribute to the global and regional debate and formulation of policy and concrete development options.
The successful implementation of Agenda 21 is dependent on the co-operation of citizens who understand what sustainable development means in terms of their everyday lives, and who are both able and willing to participate in shaping a sustainable future. The education community has a crucial role to play in supporting the individual and group learning that will enable people to live and work in ways that are more sustainable than at present. A much greater emphasis should be placed at all levels on the importance of education for sustainability, and programmes to promote it, such as Education 21, should be supported.
To motivate "political and social will" we need a real political initiative in all countries, which is organized at all levels. For achieving this it is suggested that:
D. NGO participation
A fundamental examination of the efficacy of NGO participation at the international level should be undertaken. Issues to be addressed would include:
Just as the link between the CSD and national decision-making needs to be strengthened, so NGOs working at the international level have also the responsibility to promote public interest and involvement in the process of working towards sustainability.
A review of how stakeholders, including NGOs and other major groups, can become more involved and influential in the operations and agenda setting of the CSD could be initiated.
It is important to work towards greater parity in representation from NGOs from different parts of the world at the CSD and other such meetings. Particular emphasis should be placed on ensuring enhanced participation from Southern and Eastern regions. The work of information sharing at the regional level is crucial for widening the awareness of NGOs and other organizations of civil society about the work of the CSD. Funding, and other forms of support for such outreach should be actively sought.
The methods and procedures established for NGO / major group contributions to, and involvement in the Special Session reviewing the Rio Summit may well set precedents for the future. Formal and informal arrangements dealing with issues such as rights to participate in meetings; the distribution of documents; and speaking opportunities could serve as models for future UNGA Special Sessions reviewing the World Summit for Social Development; the Small Island Developing States Conference; the Fourth World Conference on Women and others.
The very limited participation of indigenous peoples at the CSD and related fora continues to be a source of concern. As one way to address this, a Day of Indigenous Peoples could be organized, as has been done with other major groups. Efforts are necessary to disseminate more information about the CSD to indigenous societies worldwide and to create a permanent fund to support indigenous peoples' participation.
If the international community waits for the five year review of the Barbados Plan of Action for Small Island Developing States (SIDS) it will be disastrous for SIDS. We therefore demand quick and positive response. All actions initiated will require full participation of NGOs as mentioned in the SIDS NGOs' Barbados Plan of Action regarding projects for: human and natural resources management; culture; monitoring of economic, finance and trade issues; communications; and science and technology sharing.
Effective NGO and Major Group involvement next year will necessitate the following:
At present the NGO Steering Committee plays a key role in facilitating Major Groups interaction with the CSD Secretariat and the Bureau. Funding has been secured for staff and outreach. The Committee's remit makes it the logical focus for organization in preparation for the '97 Special Session. In addition to the functions already performed, tasks to be undertaken for the two preparatory meetings and the Special Session could include:
All of the above will require a great increase in the resources (both human and financial) required of the Steering Committee. The following could help address these needs:
While the Committee will maximise its co-ordination efforts, all interested NGOs should be encouraged also to provide inputs directly to the CSD Secretariat and Bureau, and to Governments.
Annex - Contributions and material from:
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