Implementing agenda 21 in local government: The Swedish experience

Abstract

Chapter 28 of the UNCED agreement ‘Agenda 21’ asks for implementing sustainable development at the local level of government. Sweden is amongst the fore‐running nations in having responded quickly to these demands. Virtually all of Sweden's 288 municipalities have decided to embark on the Local Agenda 21 process. In this article, the progress so far and how LA21 has been interpreted at the local level are examined. The motives behind the process, the tensions between national and local policy making, and the role of municipal networks and NGOs are analysed. Four case studies of pioneer municipalities are used to illustrate how LA21 has sometimes inspired more far‐reaching goals at the local than at the national level, and the combination of economic development and marketing with environmental policy. It remains to be seen whether the most recent national government investment programme towards local projects for sustainable development will resolve the present conflicts between national goals and local priorities.     

Local Institutional Development and Organizational Change for Advancing Sustainable Urban Water Futures

This paper presents the local institutional and organizational development insights from a five-year ongoing interdisciplinary research project focused on advancing the implementation of sustainable urban water management. While it is broadly acknowledged that the inertia associated with administrative systems is possibly the most significant obstacle to advancing sustainable urban water management, contemporary research still largely prioritizes investigations at the technological level. This research is explicitly concerned with critically informing the design of methodologies for mobilizing and overcoming the administrative inertia of traditional urban water management practice. The results of fourteen in-depth case studies of local government organizations across Metropolitan Sydney primarily reveal that (i) the political institutionalization of environmental concern and (ii) the commitment to local leadership and organizational learning are key corporate attributes for enabling sustainable management. A typology of five organizational development phases has been proposed as both a heuristic and capacity benchmarking tool for urban water strategists, policy makers, and decision makers that are focused on improving the level of local implementation of sustainable urban water management activity. While this investigation has focused on local government, these findings do provide guideposts for assessing the development needs of future capacity building programs across a range of different institutional contexts.     

The potential role of stated preference methods in the Water Framework Directive to assess disproportionate costs

This paper examines the issue of disproportionate costs of Water Framework Directive (WFD) implementation using public surveys as a means to inform policy and decision making. Public taxpayers are asked their opinion regarding the implementation of the WFD and its costs. Taxpayers are expected to bear a large share of the cost of WFD implementation, be it through national taxation, local water pollution charges or higher market prices for water related goods and services. The paper's main objective is to illustrate the role of stated preference research to elicit public opinions and perceptions towards socially acceptable levels of water quality and public willingness to pay (WTP) for the expected environmental benefits of the WFD. Stated preference research can be used as a way to assess the concept of disproportionate costs to those who are expected to bear a large share of the costs of WFD implementation, and at the same time address the issue of public participation in the WFD. The survey results are used as a public consultation tool to inform policy and decision makers about public willingness and ability to pay for the implementation of the WFD. This measure can be used as one of the benchmarks to define disproportionate costs in a cost-benefit context.     

River Restoration in Spain: Theoretical and Practical Approach in the Context of the European Water Framework Directive

River restoration is becoming a priority in many countries because of increasing the awareness of environmental degradation. In Europe, the EU Water Framework Directive (WFD) has significantly reinforced river restoration, encouraging the improvement of ecological status for water bodies. To fulfill the WFD requirements, the Spanish Ministry of the Environment developed in 2006 a National Strategy for River Restoration whose design and implementation are described in this paper. At the same time many restoration projects have been conducted, and sixty of them have been evaluated in terms of stated objectives and pressures and implemented restoration measures. Riparian vegetation enhancement, weir removal and fish passes were the most frequently implemented restoration measures, although the greatest pressures came from hydrologic alteration caused by flow regulation for irrigation purposes. Water deficits in quantity and quality associated with uncontrolled water demands seriously affect Mediterranean rivers and represent the main constraint to achieving good ecological status of Spanish rivers, most of them intensively regulated. Proper environmental allocation of in-stream flows would need deep restrictions in agricultural water use which seem to be of very difficult social acceptance. This situation highlights the need to integrate land-use and rural development policies with water resources and river management, and identifies additional difficulties in achieving the WFD objectives and good ecological status of rivers in Mediterranean countries.     

Agro-Ecological Analysis for the EU Water Framework Directive: An Applied Case Study for the River Contract of the Seveso Basin (Italy)

The innovative approach to the protection and management of water resources at the basin scale introduced by the European Union water framework directive (WFD) requires new scientific tools. WFD implementation also requires the participation of many stakeholders (administrators, farmers and citizens) with the aim of improving the quality of river waters and basin ecosystems through cooperative planning. This approach encompasses different issues, such as agro-ecology, land use planning and water management. This paper presents the results of a methodology suggested for implementing the WFD in the case of the Seveso river contract in Italy, one of the recent WFD applications. The Seveso basin in the Lombardy region has been one of the most rapidly urbanizing areas in Italy over the last 50?years. First, land use changes in the last 50?years are assessed with the use of historical aerial photos. Then, elements of an ecological network along the river corridor are outlined, and different scenarios for enhancing existing ecological connections are assessed using indicators from graph theory. These scenarios were discussed in technical workshops with involved stakeholders of the river contract. The results show a damaged rural landscape, where urbanization processes have decimated the system of linear green features (hedges/rows). Progressive reconnections of some of the identified network nodes may significantly increase the connectivity and circuitry of the study area.     

Green Space Changes and Planning in the Capital Region of China

Green space plays an important role in complex urban ecosystems and provides significant ecosystem services with environmental, aesthetic, recreational and economic benefits. Beijing is the capital city of China and has a large population of about 15.81 million. Construction of green spaces is an important part of sustainable development in Beijing. To attain the sustainable development of Beijing as a capital city, an international city, a historical cultural city, and a living amenity city, this article attempts to develop a comprehensive plan of green space development both at the municipal and regional levels. At the municipal level of Beijing, based on the study of green space changes, and taking physical geographic conditions and historical context into account, we propose to establish green barriers in the mountainous area, and plan a comprehensive green space pattern composed of one city, two rings, three networks, eight water areas, nine fields, and several patches in the plain area. At the regional level of the Capital Circle Region, integrating the characteristics and causes of main environmental issues, we design a macroscopic pattern—“barriers by mountains in the northwest,” “seaward open spaces in the southeast,” “grassland-forest-field-coast zones,” and “green-blue symphony”—for ecological restoration and green space construction. Finally, we discuss the principles necessary to implement green space planning considering adaptation to local conditions, composite function exploitation, interregional equity and integrated planning.     

A Methodology for the Evaluation of Water Policies in European Countries

Periodic assessment of progress toward established policy goals is crucial to understanding whether the applied efforts are effective. In Europe, the Water Framework Directive (WFD) adopted in year 2000 set ambitious environmental objectives to be achieved by the end of 2015 through the implementation of Integrated Water Resources Management (IWRM) principles. While at this stage it is premature to measure the impact of this Directive in terms of environmental outcomes, it is nonetheless important to develop indicators in order to monitor whether water management practices throughout Europe are aligning towards IWRM. This article presents the methodological development of the Water and Wetland Index, a comparative water policy assessment by environmental NGOs that was carried out in 2002–2003, and highlights the interest of repeating it in 2015, when the first WFD planning cycle will be completed.     

Benchmark Criteria: A Tool for Selecting Appropriate Models in the Field of Water Management

A milestone in the field of European water protection policy is the European Union’s Water Framework Directive (WFD), which came into force in December 2000 and which integrates the management of European waters in many ways. In this study, we start by focusing on management issues connected to the implementation of the WFD and pose a question: “what type of models would be the most suitable for use in the context of the WFD?” With this question in mind, we aim to establish a set of operational and functional selection criteria for (computer) models whose application is intended to support decision-making related to a particular water management issue. These so-called “benchmark criteria” should help water managers and other model users in choosing appropriate models, e.g., for the WFD implementation purposes. We first describe models and their use in general and then propose an approach for setting the benchmark criteria for models, basing it on the concept of uncertainty management, while keeping firmly in mind the important role of citizens and citizen organizations in water management. The suggested benchmark criteria are in the form of 14 questions through which each model can be evaluated. Finally, the process for testing and refining the benchmark criteria is highlighted.     

Development of sustainability indicators by communities in China: a case study of Chongming County,Shanghai

Public participation as a means of identifying sustainability indicators for Chongming County, Shanghai, China was evaluated by an international group drawing on established best practice. An initial 'long list' of 86 sustainability indicators, based on previous indicator systems developed in China, was identified. This 'long list' was reduced via consultations with local academics and local-government officers from Shanghai City and Chongming County to a 'short list' of 17 indicators. This short-list was subjected to further community consultation involving 159 local-government officers, teachers, students (aged 12-14 years), farmers and workers. Data from the consultations indicated differences in the understanding of sustainable development among the different sectors. By combining the data from the different sectors it was possible to identify a consensus around 4 core and 7 additional indicators. These are proposed as indicators which could be used to steer local activities directed towards sustainable development. The list of indicators produced by the people of Chongming Island was compared to local indicator systems in Europe. In comparison with European lists the Chongming list was found to have a greater emphasis on economic development but a similar level of concern for environmental matters. This study has special significance as it reports on the implementation of a process involving local resident participation in the process of sustainable development in China.     

Environmental quality and sustainability in the province of Reggio Emilia (Italy): using multi-criteria analysis to assess and compare municipal performance.

Sustainability has become an increasingly significant issue, although practical implementation remains difficult. In Italy, promoting sustainability is particularly problematic at the provincial and municipal level, where the lack of resources and expertise, and the effects of uncoordinated policies make it difficult to achieve minimum requirements to make sustainable policies operational. One essential requirement is knowledge of baseline environmental conditions in each municipality. In the province of Reggio Emilia (Northern Italy) Legambiente, an environmental association, launched an initiative called 'Ecopaese' aimed at gathering data on environmental conditions and stimulating local administrations to implement sustainable policies. To this end, the state of the environment in the 45 municipalities within the province has been monitored using 25 indicators. Their values have been used to rank the municipalities by multiple criteria analysis (MCA). The results of this comparative approach provide information about the level of sustainability attained in the province as a whole as well as in the single municipalities. It is hoped that it will provide the basis for direct action plans at the provincial level by identifying areas for remedial action, as recommended by Agenda 21, the declaration adopted by many countries attending the Rio Summit in 1992.     

Municipal Environmental Policy in Norway: from 'mainstream' policy to 'real' Agenda 21?

The Brundtland report and Agenda 21 focus on the global environment and development problems. Though Norway is usually considered a pioneer with respect to sustainable development, analyses have shown that this has not been the case with respect to Local Agenda 21. Still, Norwegian municipalities have strengthened their institutional capacity on environmental policy, and have thereby strengthened their ability to follow up the recommendations in Agenda 21. Through the high-profile government-financed reform programme, Environment in the Municipalities, which ran from 1988 to 1996, a great majority of the municipalities have employed their own environmental officers, and environmental considerations have gradually obtained a footing in municipal planning. So far, however, it is the local environmental problems that have received most attention rather than global environmental and development problems. By the start of the 21st century a crucial question is, therefore, whether the growing number of Local Agenda 21 initiatives in Norway will in fact adopt the global perspectives outlined by the Brundtland report and Agenda 21, or just keep on with a 'business as usual' environmental policy approach. So far national environmental policy in Norway seems to be reluctant to face the global problems, leaving the municipalities with the great challenge of being the 'engine' in steaming up Norwegian environmental politics.     

Community energy plans in Canadian cities: success and barriers in implementation

Climate change and sustainable development concerns have motivated some municipalities in Canada to develop community energy plans, which focus on energy needs at the local level for the development of efficient, economical and environmental energy systems. Five Canadian cities that were early adopters of community energy planning principles were studied to assess whether implementation has occurred and what barriers have been experienced. The cities achieved success in the implementation of energy management in municipal operations despite barriers in jurisdiction, perception of cost, communication and capacity, but energy management in the community had not been fully implemented and long-term changes were not prevalent. While reductions were made in the greenhouse gas (GHG) emissions produced by municipal operations, the community's overall GHG emissions were not significantly reduced. Long-term impacts on a city's function and growth will be key if community energy planning is to significantly impact community-wide GHG emissions and energy use.     

Multi-level water governance – the case of the Morsa River Basin in Norway

Management of fresh water resources meets a range of often conflicting interests. Waterways usually run across political and administrative borders and hence make management difficult and collective action politically challenging. In order to meet these challenges, multi-level bioregional approaches to water management have been called for. Such an approach is institutionalised in the EU's Water Framework Directive (WFD). This paper presents the experiences of the Morsa water sub-district in southern Norway, a pilot for implementing the WFD. The paper discusses Morsa in the light of four principles for multi-level water governance: management on a bioregional scale; polycentric governance; public participation; and an experimental approach to water governance. Contrary to widely held assumptions that collective action in polycentric networks will be difficult because actors will follow their own narrow interests, the findings demonstrate how this is not an absolute truth, and how social action cannot be fully explained by rational action theories. The analysis concludes that the relative success of Morsa relates to a complex of factors, including openness of practices and active involvement of key actors, strong but including leadership, and a knowledge based ‘hybrid’ type of multi-level network combining horizontal and vertical network governance.     

Scarcity and conflict,key problems in water management: a Mexican case study

Water scarcity has become a key issue in water management. There are two contrasting positions regarding scarcity as a source of conflict or cooperation. Accordingly, it is worth exploring what exactly are the conditions that make water scarcity a source of conflict or cooperation. The history of water conflicts has shown that people are more likely to kill around a water hole than when conflicts grow into national or international issues. This suggests that there may be an inverse relationship between the level of violence and the scale at which the water conflict takes place. A common problem in environmental management has been the lack of effective mechanisms to handle conflict. In the majority of these cases, the main shortcoming was an inability of the parties to identify their differences. Therefore, this research explores the idea that understanding the causes of conflict from the outset, followed by an evaluation, at the local scale, of the conditions, is a necessary precondition to finding appropriate and sustainable solutions. With this background in mind, the objective of this paper is to employ a conflict assessment process in order to explore to the extent to which a collaborative dialogue among stakeholders can be an appropriate approach to conflict resolution. A case study in Mexico is employed as a testing ground.     

关于地方环保机构监测监察执法垂直管理制度改革重点任务的基本考虑

为顺利推进省以下环保机构监测监察执法垂直管理制度改革工作进程,本文围绕垂直管理制度改革的方向与主线,对涉及垂直管理改革的环保责任清单、环境监察、环境监测、环境执法、市(地)级派出县级环保分局和省级对市(地)级环保局的双重管理等六个方面的主要改革任务,从改革方案的基本考虑、基本方向和具体实施路径进行系统解读,为下一步试点省份实施垂直管理制度改革提供可操作性的政策指引。     

Evaluating the Environmental Performance of Urban Parks in Mediterranean Cities: An Example from the Barcelona Metropolitan Region

In a context of increasing urban sprawl and water scarcity common to other Mediterranean cities, this article focuses on the urban parks in the Region of Barcelona (Catalonia, Spain) to examine how these parks are distributed in this region and to assess whether their design and management follow criteria adapted to Mediterranean environmental conditions, especially in what concerns water use. In order to evaluate the environmental performance of these parks, we selected four factors possibly influencing the adoption of park management practices at the local scale: urban density, population size of the municipality, municipal income per capita, and political orientation of the city council. After determining the location and area of urban parks in the region, we correlated these four explanatory factors with several management tasks extracted from two different samples of parks (one of 315 parks and another of 125 parks) and a survey of 86 city councils. Results show that, in general, urban parks were more frequent in large, dense, and left/green municipalities but that environmentally sound practices were more common in small and low-density municipalities. We conclude that changes in certain practices (especially the substitution of high water demanding species) could improve significantly the environmental performance of public spaces in large urban areas with Mediterranean climates. Our observations may be pertinent for other cities interested in the provision of environmental public goods such as parks that necessitate water for irrigation.     

Proposals for rehabilitation and management of Isipingo lagoon and estuary,South Africa

The Isipingo lagoon and estuary, situated to the south of the Durban metropolitan area, on the east coast of South Africa, has been subjected to intense environmental degradation. Historical events, such as the building of a major airport and the development of an industrial township, have contributed to the reduction in water flow from 102 × 10⁶ m³/yr to 3 × 10⁶m³/yr between 1952 and 1969. Current environmental issues such as water quality, litter, noise, air pollution, and solid waste dumping are described. A rehabilitation and management program that seeks to address these issues is proposed. The main objectives of this program are: the improvement of the water flow, the improvement of the water quality, and the curtailment of the destruction of littoral zone elements. The rehabilitation proposal is summarized by means of a flow chart, which lists short-, medium-, and long-term actions and identifies parties and/or organizations responsible for implementing the actions. A two-tier management structure is proposed, with the first level comprising an environmental monitoring committee, consisting of organizations with scientific expertise who would function in a watchdog capacity, monitoring restoration efforts and intervening where actions are contrary to the objectives of the rehabilitation program. The second level would consist of an estuarine management committee, which would be responsible for evaluating the restoration program and modifying objectives where necessary.     

The European Water Framework Directive: Water Quality Classification and Implications to Engineering Planning

The European Water framework directive (WFD) is probably the most important environmental management directive that has been enacted over the last decade in the European Union. The directive aims at achieving an overall good ecological status in all European water bodies. In this article, we discuss the implementation steps of the WFD and their implications for environmental engineering practice while focusing on rivers as the main receiving waters. Arising challenges for engineers and scientists are seen in the quantitative assessment of water quality, where standardized systems are needed to estimate the biological status. This is equally of concern in engineering planning, where the prediction of ecological impacts is required. Studies dealing with both classification and prediction of the ecological water quality are reviewed. Further, the combined emission–water quality approach is discussed. Common understanding of this combined approach is to apply the most stringent of either water quality or emission standard to a certain case. In contrast, for example, the Austrian water act enables the application of only the water quality based approach - at least on a temporary basis.