Canada and Agenda
21Canada and Agenda
21
CHAPTER 38
International Institutional Arrangements
-- Miriam Wyman --
Miriam Wyman is a consultant whose work focuses on public involvement in environmental decision-making. She was the women's sector representative on the Canadian delegation to UNCED. The views expressed in this chapter are those of the author with input from a number of stakeholders, and do not necessarily reflect the views of the Projet de Société.
THE NATURE OF THE PROBLEM
The UN Conference on Environment and Development recognized that the United Nations has a critical role to play in implementing the concrete programs of Agenda 21, and that this requires UN restructuring and revitalizing in economic, social and related fields.
Agenda 21 implementation will only be possible through continuing and coordinated efforts among relevant national and international institutions, both internal and external to the United Nations system. All countries have a vested interest in ensuring these efforts are fruitful. As a result, the UN Conference on Environment and Development recommended that the UN create a new high-level Commission for Sustainable Development with membership from countries around the world. In its work, the Commission should draw on the expertise of UN organizations, international financial institutions and of NGOs, including industry, business and scientific groups. The Commission is to monitor the progress and problems of governments and UN agencies in the implementation of decisions of Agenda 21, and to draw attention to urgent new and emerging issues in sustainable development. The CSD is a concrete and institutionalized reflection of the commitment of the international community to work towards sustainable development.
The CSD has 53 member states, chosen on an equitable geographic basis; seats will be held for terms of one to three years. The CSD will report directly to the Economic and Social Council (ECOSOC) and through it to the UN General Assembly where all member countries have policy-making and other responsibilities to fulfil. The United Nations will consider a special session, no later than 1997, to review progress on the implementation of Agenda 21.
PROGRAM AREAS AND OBJECTIVES
The overall objective is the integration of environment and development issues at national, sub-regional and international levels, including through institutional arrangements in the United Nations system itself.
Specific objectives shall be:
(1) to ensure and review implementation of Agenda 21 so as to achieve sustainable development in all countries;
(2) to enhance the role and functioning of the UN system in the field of environment and development. All relevant agencies, organizations and programs of the UN system should adopt concrete programs for the implementation of Agenda 21 and also provide policy-guidance for UN activities or advice to Governments upon request, within their respective areas of competence;
(3) to strengthen cooperation and coordination on environment and development in the UN system;
(4) to encourage interaction and cooperation between the UN system and other intergovernmental and non-governmental sub-regional, regional and global organizations in the field of environment and development;
(5) to strengthen institutional capabilities and arrangements required for the effective implementation, follow-up and review of Agenda 21;
(6) to assist in the strengthening and coordination of national, sub-regional and regional capacities and actions in the areas of environment and development;
(7) to establish effective cooperation and exchange of information between the UN organs, organizations, programs and multilateral financial bodies which make up the institutional context for the follow-up of Agenda 21;
(8) to respond to continuing and emerging issues relating to environment and development; and
(9) to ensure that any new institutional arrangements support revitalization, clear division of responsibilities and the avoidance of duplication in the UN system and depend, to the maximum extent possible, upon existing resources.
Overall, the focus on international institutional arrangements is intended to integrate environment and development issues within the existing structure of the United Nations using a minimum of new resources, to effectively implement and follow-up Agenda 21, to respond to new and emerging issues as Agenda 21 is implemented, and to promote cooperation and collaboration within the UN, between governments, NGOs and the business and scientific communities.
CANADIAN POSITIONS AT RIO
1. Official Canadian Position
Canada had five major objectives concerning UN institutional arrangements for dealing with sustainable development. They were:
to explore options regarding the institutional follow-up to UNCED;
to ensure that institutional proposals related to the UN system are developed within existing resources;
to encourage the regular preparation of national sustainable development plans, based on the results of UNCED;
to promote an expanded role for NGOs in the UNCED follow-up process; and
to clarify the role of the UN system, other international organizations, and regional and sub-regional organizations in implementing the outcomes of UNCED.
These emerged from Canada's interest in strengthening the United Nations and its multilateral system, in promoting closer cooperation within the UN system, and in maintaining its commitment to inclusiveness, transparency, accountability ("The Rio Way").
2. Non-Governmental Organizations
Canadian NGOs supported the establishment of the CSD and tabled a number of specific proposals: NGO participation at an equivalent status to member states; promotion of gender, geographic, and sector expertise on the Commission; promotion of alternative dispute resolution, and the integration of environment and development concerns at the highest political levels both nationally and internationally; and finally, promotion of reform to the United Nations system. This was rooted in concern that the UN, the World Bank, the IMF, and the GATT, which manage and control much of the world's economic system, should introduce a more effective democratic, and participatory process in their decision-making.
3. Business and Industry
Canadian business generally supported the creation of the United Nations Commission for Sustainable Development as an appropriate mechanism to encourage the integration of environment and development within international institutions. Canadian business also supported a greater role for non-government organizations within the UN system. Consistent with the Agenda 21 chapter on "Major Groups," rights of access should apply equally to all non-government organizations, including those representing business and industry.
4. Indigenous
Indigenous Peoples called for a "New Partnership" between Indigenous Peoples and Western Peoples based on mutual and equal respect. Moreover, a new ethic as proposed by the International Treaty whereby Western institutions must develop new policies which pronounce "listening and learning" from Indigenous Peoples. Governments will have to be proactive and support financially Indigenous Peoples' participation in all areas of Agenda 21.
COMMITMENTS MADE BY CANADIANS
1. Legally-Binding Documents
None.
2. Political Pronouncements
In his address June 12, 1992 at UNCED, Prime Minister Brian Mulroney stated that, Canada "will promote action on the results of this conference by the United Nations General Assembly this autumn and (Canada) will endorse the creation of the Sustainable Development Commission." The Prime Minister also offered developing countries Canada's experience and financial assistance with developing sustainability strategies.
The Prime Minister announced a ten year financial commitment to Canada's internationally acclaimed International Development Research Centre, and the addition to its Board of Directors of nominees from the UN and the World Bank.
In December 1992, Canada appointed an Ambassador for Environment and Sustainable Development.
3. Alternative NGO Treaties and Kari-Oca
NGO Treaties
At the same time as UNCED, two major international events were also held at Rio. One was the International Non-Governmental Organization Forum (Global Forum). At the Global Forum, 3,100 NGOs discussed a number of matters related to environment and development and produced a parallel set of documents: an NGO Earth Charter and 38 Alternative NGO Treaties.
The NGO Treaty Process, a major feature of the International NGO Global Forum, represents a significant development in international institutional arrangements. It demonstrates new ways for NGOs to participate in multilateral policy dialogue; it promotes the development of NGO capacity to develop policy alternatives and to represent those multilaterally. Through the International NGO Forum, an International NGO Cooperation Treaty is being developed around the world. This initiative is funded by the Canadian International Development Agency.
Kari-Oca
The second alternative forum at Rio was the International Conference on Territory, Environment and Development (the Kari-Oca Conference). The Kari-Oca Conference was held immediately prior to UNCED by and for the world's indigenous peoples. More than 650 indigenous representatives participated in meetings and cultural events during the conference. They developed and adopted a 109-point Indigenous Peoples Earth Charter.
The Kari-Oca Declaration and Indigenous Peoples Earth Charter represents a new kind of Agreement among the world's indigenous peoples. Like the NGO Treaty Process, it is representative of new forms of international institutional arrangements. It is a clear statement of demands and expectations predicated on the rights of indigenous peoples to land, resources, culture, traditional knowledge and practices, and, above all, control over their own destiny.
DEFICIENCIES, GAPS AND CONSTRAINTS WITHIN CHAPTER 38
Commitments to national reporting and follow-up were not as strong as Canada would have liked. Rather than requiring sustainability plans and strategies, or even reviewing and/or monitoring progress, the chapter now calls for consideration of the information in national reports or periodic communications, and the review of information regarding the progress made in implementing the environmental conventions. This raises concerns about the level of accountability in the Commission's functions.
To move toward sustainability, it is necessary to identify strategic roadblocks to sustainability as well as to articulate ways to resolve those at the global level; this should have been included as one of the purposes of the CSD.
There was some feeling that the CSD would carry more weight if it reported directly to the General Assembly rather than through ECOSOC. This relates to concern over the UN's ability to sustain follow-up in the light of past tendencies among some UN agencies for bureaucratic inaction or lack of innovation under changing conditions.
There is a need for improved coordination of environmental and economic concerns. This requires the presence of Finance Ministers alongside Environment Ministers, as well as political commitment at the highest levels. There is concern that UNCED follow-up at the CSD will lie in the hands of a group of Environment Ministers and UN diplomats.
While there is reference to continued participation of NGOs, their role remains vague and undefined. NGOs in Canada and abroad want opportunities for substantive input, and want to ensure that the transparent and inclusive process begun at UNCED continues.
The Chapter has largely focused on political organizations and mainly ignored social, scientific and regulatory organizations and institutions, all of which are needed to achieve sustainable development.
The Chapter recommends interaction and cooperation between the UN System and other sub-regional, regional and global institutions; however, there are no guidelines on collaboration between regional and sub-regional organizations with the UN system.
There is some regret that the Chapter does not address the institutional framework for dispute prevention and settlement and that the CSD will not be a forum for further development of international environmental law.
The Chapter lacks critical analysis of the existing institutional framework.
COMPARISON BETWEEN CURRENT CANADIAN GOVERNMENT POLICY AND COMMITMENTS MADE
Canada called on the United Nations and its agencies to take a leadership role by creating a UN Commission for Sustainable Development and supported this proposal at the UN General Assembly. Canada was elected as a member of the Commission; the initial one year term has been renewed for 3 years. And, Canada is the regional representative on the Bureau (the executive body) of the Commission for 1 year.
Throughout the UNCED process, Canada supported an expanded role for NGO participation. Canada promoted an expanded role for NGOs at the organizational session of the Commission. That commitment was reinforced by having NGO representatives on the delegation to the 47th General Assembly Meeting and to the first substantive session of the Commission for Sustainable Development.
NGOs from developing countries and a small number of indigenous groups attended the 47th General Assembly through programmes organized by a coalition of Canadian environment and development groups. The resulting "network" continues to monitor developments related to the CSD and to relay information to NGOs around the world. NGOs were influential in introducing language on gender balance and NGO participation into resolutions of the General Assembly which set up the CSD.
Canada has doubled its annual contribution to the United Nations Environment Programme (UNEP) to help it play an effective role in promoting international environment conventions and global environmental monitoring.
Following UNCED, Canada hosted a meeting of environment ministers from developed and developing nations. They agreed on the need for continuing and direct political involvement in the direction and priorities for the Commission for Sustainable Development and agreed to accelerate the international negotiations on environmental issues.
CANADIAN ACTIVITIES EVOLVING THROUGH THE SUSTAINABILITY PROCESS
Through its Green Plan, Canada has increased its funding to key international institutions involved in promoting multi-lateral solutions to environmental problems for the next 5 years. Among these organizations are: the United Nations Environment Program (UNEP), the World Meteorological Organization, the International Union for the Conservation of Nature and Natural Resources (IUCN), the International Maritime Organization (IMO), and UNESCO's World Heritage Committee.
Canada has initiated a Projet de soci‚t‚, a partnership of Canadian stakeholders dedicated to developing a national sustainable development strategy. The Projet is a coalition of national organizations whose mandate is to review the commitments Canada made at UNCED and to establish a draft framework and process for planning a sustainable future. It is based on the belief that moving to sustainability is a collective responsibility in which all levels and sectors of society must identify and implement the changes necessary to ensure economic progress consistent with ecological constraints and considerations of social equity. The goal of the Projet de soci‚t‚ is to play an important role in catalyzing and focusing Canada's transition to sustainable development. It will achieve this by adopting and fostering a multi-stakeholder approach that links strategy and action, common purpose and individual responsibility.
Canadian NGOs are establishing an NGO Forum for Sustainability, a new organizational coalition, to continue the multisectoral policy dialogue undertaken through the Canadian Participatory Committee for UNCED. The purpose of the forum is to continue to provide a forum for NGOs from different social changes sectors in Canada to work together to promote a sustainable future locally, regionally and globally.
OTHER RELEVANT INTERNATIONAL SUSTAINABILITY-RELATED FORA
Not available.
SUGGESTED READINGS AND INFORMATION SOURCES
Association canadien des nations unis. "CNUED: Options institutionelles et financiŠres pour la mise en oeuvre d'un d‚veloppement durable", Document d'information 30, (Ottawa: ACNU, 1991).
Government of Canada. Canada's Green Plan, (Ottawa: Environment Canada, 1990).
. Canada's Green Plan and the Earth Summit, (Ottawa: Environment Canada, 1992).
. Canada's National Report: United Nations Conference on Environment and Development Brazil, June 1992, (Ottawa: Environment Canada, 1991).
International Development Research Centre. Agenda 21: Abstracts, Reviews, and Commentaries, (Theodora Carroll-Foster, ed), (Ottawa: IDRC, 1993).
. The Global Cash Crunch: An Examination of Debt and Development, (Ottawa: IDRC, 1992).
Keating, Michael. Agenda for Change: A Plain Language Version of Agenda 21 and the Other Rio Agreements, (Geneva: Centre for Our Common Future, 1993).
Kimball, Lee A. Forging International Agreement: Strengthening Inter-governmental Institutions for Environment and Development, (Washington, D.C.: World Resources Institute, 1992).
Manitoba Round Table on Environment and Economy. Towards Institutional Change: Development in Harmony with our Environment, (Winnipeg, Manitoba: Manitoba Round Table on Environment and Economy, 1992).
Runnalls, David. "What Should be Said at UNCED? Institutional Choices for Sustainable Development", Paper prepared for the Foreign Policy Committee of the National Round Table on Environment and Economy (NRTEE), (Ottawa: NRTEE, 1991).
Sand, Peter H. Lessons Learned in Global Environmental Governance, (Washington, D.C: World Resources Institute, 1990).
Third World Network. "Africa's Development Crisis: A Critique of Structural Adjustment Programs -- A Need for Structural Transformation", Briefing Papers for UNCED #11, (Penang, Malaysia: Third World Network, 1991).
United Nations Association of Canada. "UNCED: Institutional and Financial Options for Sustainable Development", Briefing Paper 30, (Ottawa: UNAC, 1991).
United Nations Non-Governmental Liaison Service (NGLOS). 1993. The UN Commission on Sustainable Development, E & D File, Vol. II, No. 6, April.
World Commission on Environment and Development. Our Common Future, (Oxford: Oxford University Press, 1987).
Information Sources:
The Centre for Our Common Future (Publishers of The Network, a monthly newsletter which monitors and reports on follow-up activities to the Earth Summit and The Bulletin, a comprehensive quarterly journal of sustainable development initiatives throughout the world), Palais Wilson, 52 rue des Paquis, CH-1201, Geneva, Switzerland, tel (022) 732 71 17, fax (022) 738 50 46.
The Earth Negotiations Bulletin (successor to the Earth Summit Bulletin) is available on E-mail in the APC computer conference on unced.news.
NGO Forum for Sustainability, c/o Lynn Broughton, 63 Sparks Street, Room 603, Ottawa, Ontario K1P 5A6, tel (613) 238-3811, fax (613) 594-2948.
UN Commission on Sustainable Development, Department of Policy Coordination and Sustainable Development, Room S-3060, United Nations, New York, N.Y. 10017, USA, tel (212) 963-5959.
Cite as: Projet de société: Canada and Agenda 21.Winnipeg: IISD, 1995. Online. Internet. http://iisd.ca/worldsd/canada/projet/c38.htm.
