The global environment, in its entirety, is composed of complex, inter-related, ecosystems. To protect and preserve this complex environment requires a holistic approach that better integrates environmental problem solving at both the national, and the international level.
The key to developing a more integrated approach, is the identification of the inherent synergies that exist between different aspects of the environment, and an exploration of the potential for more effective coordination between multilateral environmental agreements.
The starting point in any discussion of inter-linkages between multilateral environmental agreements is lo-cated in the realm of science. Our common under-standing of the inter-relationships between different elements and dimensions of the environment, goes far beyond the limitations of current scientific knowledge. We have already recognized that certain inherent links exist. We know for example, that there are common gases that lead to climate change, acid rain, and ozone loss. We recognize that the climate, forests, oceans, wetlands, and biodiversity are naturally co-dependent systems.
It is also crucial that multilateral environmental agreements be considered within the broader context provided by the increasingly more complex web of international treaties, conventions, and agreements. Attempts must be made to provide for compatibility in the regulation of different international regimes. Management of the environment, for example, must be undertaken in a manner that is compatible with the regulation of international trade and investment. If legislation in regard to international regimes, what may first appear to be unrelated, cannot be made to work together effectively, the respective objectives of each may be undermined.
The current international legislative environment is not conducive to the development of coordinated, or synergistic, approaches to collective problem solving. The complexities of the issues involved, as well as the very nature of treaty making, mean that international agreements are often negotiated in relative isolation. They are negotiated by specialized ministries, or functional organizations, in forums that are completely detached from the negotiating arena of other international agreements. Further, the consensus building process that is necessary for effective multilateralism is difficult enough without the additional burden of attempting to provide for issue inter-linkages.
As a consequence, policy-making has been segregated on the basis of topic, sector, or territory. This results in the negotiation of treaties that may overlap and conflict with each other or, inadvertently, override the very principles upon which each is based. It may also result in unnecessary complications at the national level as signatories struggle to meet their obligations under multiple agreements. An integrated national response would be more effective in terms of meeting their requirements under a number of different multilateral environmental agreements.
The recognition of a need to develop natural synergies and provide better policy coordination is gradually making its way into the institutional decision-making process. The response, however, has mostly originated at the policy management level rather than the scientific level. Efforts have been made to improve management of structures, reduce overlap, and improve cost-effectiveness. Little has been achieved in terms of exploring the efficiencies that may be gained through identifying and utilizing the natural synergies within the environment itself. It is these synergies that may provide the basis for more effective coordination between the different multilateral environmental agreements.
Many agencies have taken the lead on this issue and there are several important ongoing initiatives:
Calls from UN governing bodies:
» "The Task Force's review of existing UN structures and
arrangements in the field of the environment and human settlement
has revealed that current UN activities are characterized by
substantial overlaps, unrecognized linkages and gaps. These flaws
are basic and pervasive." Report of the United Nations Task Force
on Environment and Human Settlement (1998), General Assembly
Document A/53/463(annexed)
» The Secretary General reforms "...recognized the need for a more
integrated systematic approach to policies and programmes". Report
of the Secretary General: Renewing the UN - a Programme for Reform.
Doc. A/51/950, July 14, 1997;
» "The conference of the parties to conventions signed at the
United Nations Conference on Environment and Development - or as
a result of it - as well as other conventions related to
sustainable development, should cooperate in exploring ways and
means of collaborating in their work to advance the effective
implementation of the conventions to continue to pursue
sustainable development objectives" - Rio + 5 General Assembly
Special Session A/S-19/29 27 June 1997;
» Legal Preparatory Committee Group of UNCED, latter
adopted by Agenda 21;
» 1987 World Commission on Environment and Development.
Calls from international environmental leaders:
» "We have observed and indeed been involved in the growth
of international environmental agreements... We are concerned
however, at the lack of coordination between these instruments
and we urge therefore the creation of holistic framework which
eliminates redundancies and fill the gaps in the Rio instruments,
to create synergies in a global system". - The Cape Cod
Declaration adopted at the GLOBE International
13th General Assembly, Cape Cod 24-26 August 1998;
» "There is an important need to single out the interdependent
synergetic effects of the Conventions and to better coordinate
the actions, which are crucial keys for effective implementation
of our multilateral agreements". - Klaus Topfer, UNEP Executive
Director, Statement made to GEF Assembly, New Delhi, India.
April 1, 1998.
Initiatives taken by the UN organ, specialized agencies and MEA Secretariats
» Experts meeting organized by the Sustainable Energy and
Environment Division (UNDP/SEED), held in Israel March 1997, on
Synergies in National Implementation between the Rio Agreements
(35 participants);
» World Bank Report on the scientific inter-linkages
entitled "Protecting our Planet, Securing our Future", under
the guidance of Robert Watson, November 1998;
» Under contract of UNEP, World Conservation Monitoring Center:
"Feasibility Study for Information Management Infrastructure",
August 1998.
Decisions taken by MEA Secretariat and UN or Specialized Agencies:
» Decision taken by the Conference of the Parties to the
Desertification Convention to seek synergies between it and
other environmental agreements. ICCD/COP(2)/7, 17 November 1998;
» Decision taken by the 3rd Conference of the Parties to the
Convention to the Biological Diversity to focus on the synergies
between it and other bio-diversity-related conventions including
CITES (International Trade in Endangered Species), CMS (Migratory
Species), Ramsar ("Wetlands") and WH (World Heritage).
Decision CBD/COP/III/21, November 1996.
» Report on the inter-linkages between the Kyoto Protocol and
other Multilateral Regimes (1998). Edited by Laura Campbell,
W. Bradnee Chambers, and Jerry Velasquez, 48 pp. (released at
Fourth Session Conference (COP4) of the Parties of the Climate
Change Convention, Buenos Aries);
» Scenarios and Options on the inter-linkages between the
Kyoto Protocol and other Multilateral Regimes (1999), W. Bradnee
Chambers, Shona Dodds and Jerry Velasquez, 42 pp. (released at
the 11th session of the Subsidiary Meetings to the Climate Change
Convention, Bonn Germany).
The development of effective global governance at the conceptual level is in danger of being outstripped by the need for it at a practical level. Treaty congestion, the negative impacts of globalization and environmental damage are "gaining momentum" every day. A synergistic and coordinated approach to international policy making is a concept that has come of age. In effort to assist in the development of a synergistic and coordinated approach to environmental policy making that takes account of the existing inter-linkages between environmental issues, the United Nations University and its partners are convening an "International Conference on Synergies and Coordination" on July 14-16. The Conference will meet several objectives:
» To create awareness at the public, governmental and inter-
governmental level of the importance of synergies and co-
ordination;
» To survey existing initiatives on synergies and coordination
between MEA-s;
» To foster discussion and interaction among international
institutions, scholars, and other relevant interest-holders who
can cooperate to identify and examine opportunities for synergy
and coordination;
» To determine concrete mechanisms, 'next step'-s, and feasible
"win-win" paths forward on this important issue.
Working Group One: Harmonization of Information Systems and Information Exchanges
The function of this group is to examine ways of har-monizing information in environmental and sustainable development agreements, at the global as well as the national and local levels. The group shall endeavor:
» To identify how to improve the practical sharing of sets
of data at the international institutional level;
» To examine methods of harmonizing reporting, planning,
strategies/action programmes and infor-mation systems
for conventions;
» To determine ways to improve collection, organi-zation
and dissemination of information relevant to each convention
process.
Working Group Two: Finance
Finance is one of the keys to achieving sustainable development The group
shall endeavor:
» To examine means by which current financial mechanisms,
existing arrangements and donor in-stitutions can encourage
and support projects that promote synergies;
» To explore possibilities for creating common lending criteria,
reporting, and policies between multilateral and bilateral
donor agencies;
» To examine opportunities to strengthen capacity at the national
level that promotes integrated and better-coordinated policy
making processes and synergistic implementation of environmental
and sustainable development agreements;
» To explore innovative and alternative financing methods at
national and local levels for projects that have multiple or
synergistic benefits.
Working Group Three: Issue Management
An issue management system was identified in several UN reports. The group shall endeavor:
» To determine the appropriateness of the issue management
approach as a specific way to address problems that cut
across MEAs and may require inter-MEA action;
» To discuss new ways and methods for developing synergies
around specific issues which can then lead to more permanent
and far reaching synergies;
» To examine past and on-going examples of issue management
and identify lessons learned from these experiences;
» To identify how issue management might function practically
and contribute to improving existing mechanisms between the
conventions and organizations;
» To decide on a set of guiding principles that would assist
the execution of issue management between secretariats and
organizations.
Working Group Four: Scientific Mechanisms
The need for this theme was highlighted in the UNEP, NASA and World Bank report
Protecting Our Planet - Securing Our Future. The group shall endeavor:
» To review existing scientific inter-linkages between
environmental conventions;
» To discuss possible inter-linkages between environmental
issues and ways of identifying them;
» To explore possible mechanisms to deal with these
inter-linkages.
Special Working Group: Synergies for Sustainable Development
A number of experienced former officials or 'wise per-sons' will be requested
to look into the in order to en-sure sustainable development. The group shall endeavor:
» To explore the values, attitudes and practices that need
to be encouraged or discouraged, for build-ing sustainable
development;
» To consider the need for any medium and long term structural
realignments that may be required in the existing global
institutional framework for sustainable development.
