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the international community on grant or concessional terms. These are indicative and order-of-

magnitude estimates only and have not been reviewed by Governments. Actual costs and financial

terms, including any that are non-concessional, will depend upon, inter alia, the specific strategies and

programmes Governments decide upon for implementation.

(b) Human resource development and capacity-building

7.72. Developing countries should be assisted by international support and funding agencies in

upgrading the technical and managerial capacities of the small entrepreneur and the vocational skills

of operatives and supervisors in the building materials industry, using a variety of training methods.

These countries should also be assisted in developing programmes to encourage the use of non-waste

and clean technologies through appropriate transfer of technology.

7.73. General education programmes should be developed in all countries, as appropriate, to increase

builder awareness of available sustainable technologies.

7.74. Local authorities are called upon to play a pioneering role in promoting the increased use of

environmentally sound building materials and construction technologies, e.g., by pursuing an

innovative procurement policy.

H. Promoting human resource development and capacity-building for human settlements

development

Basis for action

7.75. Most countries, in addition to shortcomings in the availability of specialized expertise in the areas

of housing, settlement management, land management, infrastructure, construction, energy, transport,

and pre-disaster planning and reconstruction, face three cross-sectoral human resource development

and capacity-building shortfalls. First is the absence of an enabling policy environment capable of

integrating the resources and activities of the public sector, the private sector and the community, or

social sector; second is the weakness of specialized training and research institutions; and third is the

insufficient capacity for technical training and assistance for low-income communities, both urban and

rural.

Objective

7.76. The objective is to improve human resource development and capacity-building in all countries by

enhancing the personal and institutional capacity of all actors, particularly indigenous people and

women, involved in human settlement development. In this regard, account should be taken of

traditional cultural practices of indigenous people and their relationship to the environment.

Activities

7.77. Specific human resource development and capacity-building activities have been built into each of

the programme areas of this chapter. More generally, however, additional steps should be taken to

reinforce those activities. In order to do so, all countries, as appropriate, should take the following

action:

a. Strengthening the development of human resources and of capacities of public sector

institutions through technical assistance and international cooperation so as to

achieve by the year 2000 substantial improvement in the efficiency of governmental

activities;

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b. Creating an enabling policy environment supportive of the partnership between the

public, private and community sectors;

c. Providing enhanced training and technical assistance to institutions providing

training for technicians, professionals and administrators, and appointed, elected and

professional members of local governments and strengthening their capacity to

address priority training needs, particularly in regard to social, economic and

environmental aspects of human settlements development;

d. Providing direct assistance for human settlement development at the community

level, inter alia, by:

Strengthening and promoting programmes for social mobilization and

raising awareness of the potential of women and youth in human

settlements activities;

ii.

Facilitating coordination of the activities of women, youth, community

groups and non-governmental organizations in human settlements

development;

iii.

Promoting research on women's programmes and other groups, and

evaluating progress made with a view to identifying bottlenecks and needed

assistance;

e. Promoting the inclusion of integrated environmental management into general local

government activities.

7.78. Both international organizations and non-governmental organizations should support the above

activities by, inter alia, strengthening subregional training institutions, providing updated training

materials and disseminating the results of successful human resource and capacity-building activities,

programmes and projects.

Means of implementation

(a) Financing and cost evaluation

7.79. The Conference secretariat has estimated the average total annual cost (1993-2000) of

implementing the activities of this programme to be about $65 million from the international

community on grant or concessional terms. These are indicative and order-of-magnitude estimates

only and have not been reviewed by Governments. Actual costs and financial terms, including any that

are non-concessional, will depend upon, inter alia, the specific strategies and programmes

Governments decide upon for implementation.

(b) Scientific and technological means

7.80. Both formal training and non-formal types of human resource development and capacity-building

programmes should be combined, and use should be made of user-oriented training methods, up-to-

date training materials and modern audio-visual communication systems.

Notes

1/ No aggregate figures are available on internal expenditure or official development assistance on human

settlements. However, data available in the World Development Report, 1991, for 16 low-income

developing countries show that the percentage of central government expenditure on housing, amenities

and social security and welfare for 1989 averaged 5.6 per cent, with a high of 15.1 per cent in the case of

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Sri Lanka, which has embarked on a vigorous housing programme. In OECD industrialized countries,

during the same year, the percentage of central government expenditure on housing, amenities and social

security and welfare ranged from a minimum of 29.3 per cent to a maximum of 49.4 per cent, with an

average of 39 per cent (World Bank, World Development Report, 1991, World Development Indicators,

table 11 (Washington, D.C., 1991)).

2/ See the report of the Director-General for Development and International Economic Cooperation

containing preliminary statistical data on operational activities of the United Nations system for 1988

(A/44/324-E/1989/106/Add.4, annex).

3/ World Bank, Annual Report, 1991 (Washington, D.C., 1991).

4/ UNDP, "Reported investment commitments related to UNDP-assisted projects, 1988", table 1, "Sectoral

distribution of investment commitment in 1988-1989".

5/ A pilot programme of this type, the City Data Programme (CDP), is already in operation in the United

Nations Centre on Human Settlements (Habitat) aimed at the production and dissemination to participating

cities of microcomputer application software designed to store, process and retrieve city data for local,

national and international exchange and dissemination.

6/ This calls for integrated land-resource management policies, which are also addressed in chapter 10 of

Agenda 21 (Integrated approach to planning and management of land resources).

7/ The goals of the International Decade for Natural Disaster Reduction, set out in the annex to General

Assembly resolution 44/236, are as follows:

a. To improve the capacity of each country to mitigate the effects of natural disasters expeditiously

and effectively, paying special attention to assisting developing countries in the assessment of

disaster damage potential and in the establishment of early warning systems and disaster-resistant

structures when and where needed;

b. To devise appropriate guidelines and strategies for applying existing scientific and technical

knowledge, taking into account the cultural and economic diversity among nations;

c. To foster scientific and engineering endeavours aimed at closing critical gaps in knowledge in

order to reduce loss of life and property;

d. To disseminate existing and new technical information related to measures for the assessment,

prediction and mitigation of natural disasters;

e. To develop measures for the assessment, prediction, prevention and mitigation of natural disasters

through programmes of technical assistance and technology transfer, demonstration projects, and

education and training, tailored to specific disasters and locations, and to evaluate the

effectiveness of those programmes.

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Agenda 21 – Chapter 8

INTEGRATING ENVIRONMENT AND DEVELOPMENT IN DECISION-MAKING

8.1. This chapter contains the following programme areas:

a. Integrating environment and development at the policy, planning and management levels;

b. Providing an effective legal and regulatory framework;

c. Making effective use of economic instruments and market and other incentives;

d. Establishing systems for integrated environmental and economic accounting.

PROGRAMME AREAS

A. Integrating environment and development at the policy, planning and management levels

Basis for action

8.2. Prevailing systems for decision-making in many countries tend to separate economic, social and

environmental factors at the policy, planning and management levels. This influences the actions of all

groups in society, including Governments, industry and individuals, and has important implications for

the efficiency and sustainability of development. An adjustment or even a fundamental reshaping of

decision-making, in the light of country-specific conditions, may be necessary if environment and

development is to be put at the centre of economic and political decision-making, in effect achieving a

full integration of these factors. In recent years, some Governments have also begun to make

significant changes in the institutional structures of government in order to enable more systematic

consideration of the environment when decisions are made on economic, social, fiscal, energy,

agricultural, transportation, trade and other policies, as well as the implications of policies in these

areas for the environment. New forms of dialogue are also being developed for achieving better

integration among national and local government, industry, science, environmental groups and the

public in the process of developing effective approaches to environment and development. The

responsibility for bringing about changes lies with Governments in partnership with the private sector

and local authorities, and in collaboration with national, regional and international organizations,

including in particular UNEP, UNDP and the World Bank. Exchange of experience between countries

can also be significant. National plans, goals and objectives, national rules, regulations and law, and

the specific situation in which different countries are placed are the overall framework in which such

integration takes place. In this context, it must be borne in mind that environmental standards may

pose severe economic and social costs if they are uniformly applied in developing countries.

Objectives

8.3. The overall objective is to improve or restructure the decision-making process so that consideration of

socio-economic and environmental issues is fully integrated and a broader range of public

participation assured. Recognizing that countries will develop their own priorities in accordance with

their prevailing conditions, needs, national plans, policies and programmes, the following objectives

are proposed:

a. To conduct a national review of economic, sectoral and environmental policies,

strategies and plans to ensure the progressive integration of environmental and

developmental issues;

b. To strengthen institutional structures to allow the full integration of environmental

and developmental issues, at all levels of decision-making;

c. To develop or improve mechanisms to facilitate the involvement of concerned

individuals, groups and organizations in decision-making at all levels;

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d. To establish domestically determined procedures to integrate environment and

development issues in decision-making.

Activities

(a) Improving decision-making processes

8.4. The primary need is to integrate environmental and developmental decision-making processes. To do

this, Governments should conduct a national review and, where appropriate, improve the processes of

decision-making so as to achieve the progressive integration of economic, social and environmental

issues in the pursuit of development that is economically efficient, socially equitable and responsible

and environmentally sound. Countries will develop their own priorities in accordance with their

national plans, policies and programmes for the following activities:

a. Ensuring the integration of economic, social and environmental considerations in

decision-making at all levels and in all ministries;

b. Adopting a domestically formulated policy framework that reflects a long-term

perspective and cross-sectoral approach as the basis for decisions, taking account of

the linkages between and within the various political, economic, social and

environmental issues involved in the development process;

c. Establishing domestically determined ways and means to ensure the coherence of

sectoral, economic, social and environmental policies, plans and policy instruments,

including fiscal measures and the budget; these mechanisms should apply at various

levels and bring together those interested in the development process;

d. Monitoring and evaluating the development process systematically, conducting

regular reviews of the state of human resources development, economic and social

conditions and trends, the state of the environment and natural resources; this could

be complemented by annual environment and development reviews, with a view to

assessing sustainable development achievements by the various sectors and

departments of government;

e. Ensuring transparency of, and accountability for, the environmental implications of

economic and sectoral policies;

f. Ensuring access by the public to relevant information, facilitating the reception of

public views and allowing for effective participation.

(b) Improving planning and management systems

8.5. To support a more integrated approach to decision-making, the data systems and analytical methods

used to support such decision-making processes may need to be improved. Governments, in

collaboration, where appropriate, with national and international organizations, should review the

status of the planning and management system and, where necessary, modify and strengthen

procedures so as to facilitate the integrated consideration of social, economic and environmental

issues. Countries will develop their own priorities in accordance with their national plans, policies and

programmes for the following activities:

a. Improving the use of data and information at all stages of planning and management,

making systematic and simultaneous use of social, economic, developmental,

ecological and environmental data; analysis should stress interactions and

synergisms; a broad range of analytical methods should be encouraged so as to

provide various points of view;

b. Adopting comprehensive analytical procedures for prior and simultaneous

assessment of the impacts of decisions, including the impacts within and among the

economic, social and environmental spheres; these procedures should extend beyond

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the project level to policies and programmes; analysis should also include assessment

of costs, benefits and risks;

c. Adopting flexible and integrative planning approaches that allow the consideration

of multiple goals and enable adjustment of changing needs; integrative area

approaches at the ecosystem or watershed level can assist in this approach;

d. Adopting integrated management systems, particularly for the management of

natural resources; traditional or indigenous methods should be studied and

considered wherever they have proved effective; women's traditional roles should

not be marginalized as a result of the introduction of new management systems;

e. Adopting integrated approaches to sustainable development at the regional level,

including transboundary areas, subject to the requirements of particular

circumstances and needs;

f. Using policy instruments (legal/regulatory and economic) as a tool for planning and

management, seeking incorporation of efficiency criteria in decisions; instruments

should be regularly reviewed and adapted to ensure that they continue to be

effective;

g. Delegating planning and management responsibilities to the lowest level of public

authority consistent with effective action; in particular the advantages of effective

and equitable opportunities for participation by women should be discussed;

h. Establishing procedures for involving local communities in contingency planning for

environmental and industrial accidents, and maintaining an open exchange of

information on local hazards.

8.6. Countries could develop systems for monitoring and evaluation of progress towards achieving

sustainable development by adopting indicators that measure changes across economic, social and

environmental dimensions.

(d) Adopting a national strategy for sustainable development

8.7. Governments, in cooperation, where appropriate, with international organizations, should adopt a

national strategy for sustainable development based on, inter alia, the implementation of decisions

taken at the Conference, particularly in respect of Agenda 21. This strategy should build upon and

harmonize the various sectoral economic, social and environmental policies and plans that are

operating in the country. The experience gained through existing planning exercises such as national

reports for the Conference, national conservation strategies and environment action plans should be

fully used and incorporated into a country-driven sustainable development strategy. Its goals should be

to ensure socially responsible economic development while protecting the resource base and the

environment for the benefit of future generations. It should be developed through the widest possible

participation. It should be based on a thorough assessment of the current situation and initiatives.

Means of implementation

(a) Financing and cost evaluation

8.8. The Conference secretariat has estimated the average total annual cost (1993-2000) of implementing

the activities of this programme to be about $50 million from the international community on grant or

concessional terms. These are indicative and order-of-magnitude estimates only and have not been

reviewed by Governments. Actual costs and financial terms, including any that are non-concessional,

will depend upon, inter alia, the specific strategies and programmes Governments decide upon for

implementation.

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(b) Researching environment and development interactions

8.9. Governments, in collaboration with the national and international scientific community and in

cooperation with international organizations, as appropriate, should intensify efforts to clarify the

interactions between and within social, economic and environmental considerations. Research should

be undertaken with the explicit objective of assisting policy decisions and providing recommendations

on improving management practices.

8.10. Countries, in cooperation, where appropriate, with national, regional or international

organizations, should ensure that essential human resources exist, or be developed, to undertake the

integration of environment and development at various stages of the decision-making and

implementation process. To do this, they should improve education and technical training, particularly

for women and girls, by including interdisciplinary approaches, as appropriate, in technical,

vocational, university and other curricula. They should also undertake systematic training of

government personnel, planners and managers on a regular basis, giving priority to the requisite

integrative approaches and planning and management techniques that are suited to country-specific

conditions.

(d) Promoting public awareness

8.11. Countries, in cooperation with national institutions and groups, the media and the international

community, should promote awareness in the public at large, as well as in specialized circles, of the

importance of considering environment and development in an integrated manner, and should establish

mechanisms for facilitating a direct exchange of information and views with the public. Priority should

be given to highlighting the responsibilities and potential contributions of different social groups.

(e) Strengthen national institutional capacity

8.12. Governments, in cooperation, where appropriate, with international organizations, should

strengthen national institutional capability and capacity to integrate social, economic, developmental

and environmental issues at all levels of development decision-making and implementation. Attention

should be given to moving away from narrow sectoral approaches, progressing towards full cross-

sectoral coordination and cooperation.

B. Providing an effective legal and regulatory framework

Basis for action

8.13. Laws and regulations suited to country-specific conditions are among the most important

instruments for transforming environment and development policies into action, not only through

"command and control" methods, but also as a normative framework for economic planning and

market instruments. Yet, although the volume of legal texts in this field is steadily increasing, much of

the law-making in many countries seems to be ad hoc and piecemeal, or has not been endowed with

the necessary institutional machinery and authority for enforcement and timely adjustment.

8.14. While there is continuous need for law improvement in all countries, many developing countries

have been affected by shortcomings of laws and regulations. To effectively integrate environment and

development in the policies and practices of each country, it is essential to develop and implement

integrated, enforceable and effective laws and regulations that are based upon sound social, ecological,

economic and scientific principles. It is equally critical to develop workable programmes to review

and enforce compliance with the laws, regulations and standards that are adopted. Technical support

may be needed for many countries to accomplish these goals. Technical cooperation requirements in

this field include legal information, advisory services and specialized training and institutional

capacity-building.

8.15. The enactment and enforcement of laws and regulations (at the regional, national, state/provincial

or local/municipal level) are also essential for the implementation of most international agreements in

the field of environment and development, as illustrated by the frequent treaty obligation to report on

legislative measures. The survey of existing agreements undertaken in the context of conference

preparations has indicated problems of compliance in this respect, and the need for improved national

implementation and, where appropriate, related technical assistance. In developing their national

priorities, countries should take account of their international obligations.

Objectives

8.16. The overall objective is to promote, in the light of country-specific conditions, the integration of

environment and development policies through appropriate legal and regulatory policies, instruments

and enforcement mechanisms at the national, state, provincial and local level. Recognizing that

countries will develop their own priorities in accordance with their needs and national and, where

appropriate, regional plans, policies and programmes, the following objectives are proposed:

a. To disseminate information on effective legal and regulatory innovations in the field

of environment and development, including appropriate instruments and compliance

incentives, with a view to encouraging their wider use and adoption at the national,

state, provincial and local level;

b. To support countries that request it in their national efforts to modernize and

strengthen the policy and legal framework of governance for sustainable

development, having due regard for local social values and infrastructures;

c. To encourage the development and implementation of national, state, provincial and

local programmes that assess and promote compliance and respond appropriately to

non-compliance.

Activities

(a) Making laws and regulations more effective

8.17. Governments, with the support, where appropriate, of competent international organizations,

should regularly assess the laws and regulations enacted and the related institutional/administrative

machinery established at the national/state and local/municipal level in the field of environment and

sustainable development, with a view to rendering them effective in practice. Programmes for this

purpose could include the promotion of public awareness, preparation and distribution of guidance

material, and specialized training, including workshops, seminars, education programmes and

conferences, for public officials who design, implement, monitor and enforce laws and regulations.

(b) Establishing judicial and administrative procedures

8.18. Governments and legislators, with the support, where appropriate, of competent international

organizations, should establish judicial and administrative procedures for legal redress and remedy of

actions affecting environment and development that may be unlawful or infringe on rights under the

law, and should provide access to individuals, groups and organizations with a recognized legal

interest.

8.19. Competent intergovernmental and non-governmental organizations could cooperate to provide

Governments and legislators, upon request, with an integrated programme of environment and

development law (sustainable development law) services, carefully adapted to the specific

requirements of the recipient legal and administrative systems. Such systems could usefully include

assistance in the preparation of comprehensive inventories and reviews of national legal systems. Past

experience has demonstrated the usefulness of combining specialized legal information services with

legal expert advice. Within the United Nations system, closer cooperation among all agencies

concerned would avoid duplication of databases and facilitate division of labour. These agencies could

examine the possibility and merit of performing reviews of selected national legal systems.

(d) Establishing a cooperative training network for sustainable development law

8.20. Competent international and academic institutions could, within agreed frameworks, cooperate to

provide, especially for trainees from developing countries, postgraduate programmes and in-service

training facilities in environment and development law. Such training should address both the effective

application and the progressive improvement of applicable laws, the related skills of negotiating,

drafting and mediation, and the training of trainers. Intergovernmental and non-governmental

organizations already active in this field could cooperate with related university programmes to

harmonize curriculum planning and to offer an optimal range of options to interested Governments

and potential sponsors.

(e) Developing effective national programmes for reviewing and enforcing compliance with national, state,

provincial and local laws on environment and development

8.21. Each country should develop integrated strategies to maximize compliance with its laws and

regulations relating to sustainable development, with assistance from international organizations and

other countries as appropriate. The strategies could include:

a. Enforceable, effective laws, regulations and standards that are based on sound

economic, social and environmental principles and appropriate risk assessment,

incorporating sanctions designed to punish violations, obtain redress and deter future

violations;

b. Mechanisms for promoting compliance;

c. Institutional capacity for collecting compliance data, regularly reviewing

compliance, detecting violations, establishing enforcement priorities, undertaking

effective enforcement, and conducting periodic evaluations of the effectiveness of

compliance and enforcement programmes;

d. Mechanisms for appropriate involvement of individuals and groups in the

development and enforcement of laws and regulations on environment and

development.

e. National monitoring of legal follow-up to international instruments

8.22. Contracting parties to international agreements, in consultation with the appropriate secretariats of

relevant international conventions as appropriate, should improve practices and procedures for

collecting information on legal and regulatory measures taken. Contracting parties to international

agreements could undertake sample surveys of domestic follow-up action subject to agreement by the

sovereign States concerned.

Means of implementation

(a) Financing and cost evaluation

8.23. The Conference secretariat has estimated the average total annual cost (1993-2000) of

implementing the activities of this programme to be about $6 million from the international

community on grant or concessional terms. These are indicative and order-of-magnitude estimates

only and have not been reviewed by Governments. Actual costs and financial terms, including any that

are non-concessional, will depend upon, inter alia, the specific strategies and programmes

Governments decide upon for implementation.

(b) Scientific and technological means

8.24. The programme relies essentially on a continuation of ongoing work for legal data collection,

translation and assessment. Closer cooperation between existing databases may be expected to lead to

better division of labour (e.g., in geographical coverage of national legislative gazettes and other

reference sources) and to improved standardization and compatibility of data, as appropriate.

8.25. Participation in training is expected to benefit practitioners from developing countries and to

enhance training opportunities for women. Demand for this type of postgraduate and in-service

training is known to be high. The seminars, workshops and conferences on review and enforcement

that have been held to date have been very successful and well attended. The purpose of these efforts

is to develop resources (both human and institutional) to design and implement effective programmes

to continuously review and enforce national and local laws, regulations and standards on sustainable

development.

(d) Strengthening legal and institutional capacity

8.26. A major part of the programme should be oriented towards improving the legal-institutional

capacities of countries to cope with national problems of governance and effective law-making and

law-applying in the field of environment and sustainable development. Regional centres of excellence

could be designated and supported to build up specialized databases and training facilities for

linguistic/cultural groups of legal systems.

C. Making effective use of economic instruments and market and other incentives

Basis for action

8.27. Environmental law and regulation are important but cannot alone be expected to deal with the

problems of environment and development. Prices, markets and governmental fiscal and economic

policies also play a complementary role in shaping attitudes and behaviour towards the environment.

8.28. During the past several years, many Governments, primarily in industrialized countries but also in

Central and Eastern Europe and in developing countries, have been making increasing use of

economic approaches, including those that are market-oriented. Examples include the polluter-pays

principle and the more recent natural-resource-user-pays concept.

8.29. Within a supportive international and national economic context and given the necessary legal and

regulatory framework, economic and market-oriented approaches can in many cases enhance capacity

to deal with the issues of environment and development. This would be achieved by providing cost-

effective solutions, applying integrated pollution prevention control, promoting technological

innovation and influencing environmental behaviour, as well as providing financial resources to meet

sustainable development objectives.

8.30. What is needed is an appropriate effort to explore and make more effective and widespread use of

economic and market-oriented approaches within a broad framework of development policies, law and

regulation suited to country-specific conditions as part of a general transition to economic and

environmental policies that are supportive and mutually reinforcing.

Objectives

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