COMMISSION ON SUSTAINABLE DEVELOPMENT TO HOLD FIFTH SESSION AT HEADQUARTERS 8 - 25 APRIL

4 April 1997

Press Release
ENV/DEV/406

COMMISSION ON SUSTAINABLE DEVELOPMENT TO HOLD FIFTH SESSION AT HEADQUARTERS 8 - 25 APRIL

19970404 Background Release Three-Week Session To Focus on Negotiations, Final Preparations for Assembly's Special Session on Implementation of Agenda 21

Five years after the United Nations Conference on Environment and Development (UNCED) (Rio de Janeiro, 1992), significant environment problems remain deeply embedded in the socio-economic fabric of nations in all regions, according to the proposed final document of the General Assembly's special session that will review the implementation of the Rio outcome.

That text will be the starting point for negotiations during the fifth session of the 53-member Commission on Sustainable Development, when it meets at Headquarters from 8 to 25 April, as a preparatory and negotiating body for the special session, the Assembly's nineteenth, to be held in New York from 23 to 27 June.

Also in the proposed final document, concern is expressed over the lack of progress in the areas of finance and technology transfer for sustainable development, and the foreign debt situation is described as a major constraint towards achieving the goals and commitments of Rio.

At the upcoming session, the Commission's three-day high-level segment will discuss the proposed outcome of the Assembly's session, which was drafted by the Ad Hoc Open-ended Intersessional Working Group of the Commission, when it met in New York from 24 February to 7 March. Also to be discussed is the report of the fourth and last session of the Ad Hoc Intergovernmental Panel on Forests, held in New York from 11 to 21 February.

The high-level segment will be followed, on 11 April, by a plenary meeting where the results of various regional and other preparatory activities for the session, inputs from relevant conventions, regional commissions, and intersessional meetings hosted by countries and organizations will be presented. Another plenary meeting that same day will consider issues which were not dealt with by the Intersessional Working Group and the Intergovernmental Panel on Forests, including ways of streamlining national reporting procedures on the implementation of the Rio outcome.

Dialogue sessions with representatives of "major groups" -- basically non-governmental actors considered critical to the effective implementation of Agenda 21 -- will begin, in parallel with the plenary sessions, on 11 April and will continue throughout the session's second week. Dialogue sessions are scheduled with representatives of children and youth, the scientific and technological community, women's groups, workers and trade unions, indigenous peoples, non-governmental organizations, local authorities, farmers, and business and industry organizations.

A drafting group will meet in parallel with the panel discussions during the session's second week. That group will have the task of negotiating the proposed final document on a review and appraisal of Agenda 21's implementation, to be submitted to the special session in June for adoption. The drafting negotiations will continue during the third week as well.

There should be no attempt to renegotiate documents already adopted in the field of environment and development, the Assembly stressed in resolution 51/181 on preparations for the special session. The major focus of both the Commission's preparatory meetings and the Assembly's session should be the fulfilment of the Rio commitments and the further implementation of Agenda 21 and related outcomes of the UNCED.

The two main consensus texts adopted by UNCED are the Rio Declaration on Environment and Development and Agenda 21, a comprehensive programme of action to be implemented into the twenty-first century by governments and organizations in all areas where human activity affects the environment. It consists of a preamble and 40 chapters divided into programme areas, which are addressed in terms of basis for action, objectives, activities and means of implementation. In conjunction with the 27 principles of the Rio Declaration, Agenda 21 established a comprehensive global approach to the achievement of sustainable development.

The chapters address, among other issues, combating poverty, changing consumption and production patterns, protecting the atmosphere, combating deforestation, meeting agricultural needs, sustaining biological diversity, safeguarding the oceans resources, managing hazardous wastes, as well as the financial resources and mechanisms required to tackle those problems.

The provisional agenda for the Commission's fifth session is contained in document E/CN.17/1997/1.

Summaries of the main reports before the Commission follow.

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Overall Trends in Sustainable Development Worsening

The Commission's Ad Hoc Open-ended Intersessional Working Group was mandated to assist the Commission's fifth session in the preparations for the special session. In its deliberations, the Working Group took account, among other texts, of outcomes of various intersessional activities organized by governments and organizations and other relevant inputs. Its report (document E/CN.17/1997/13) recommends a format and the structure of the proposed final document and the main elements to be included in it. The Working Group was co-chaired by Celso Luiz Nunes Amorim (Brazil) and Derek Osborn (United Kingdom).

Section I of the report, entitled "proposed outcome of the special session" provides a starting point for further discussion and negotiation. It compiles the main proposals made and concerns expressed by participants on key issues that should be addressed in preparing for the special session. The document before the Commission, however, is not a negotiated text, just a compilation of ideas expressed by participants in the Working Group's session.

The "proposed outcome" consists of a statement of commitment, assessment of progress made since UNCED, implementation in areas requiring urgent action, and international institutional arrangements. The report also focused on the need for greater coherence in various intergovernmental organizations and processes, the role of the United Nations system, the Commission's future role and programme of work, as well as its method of work.

The statement of commitment, says the report, "could be either a preamble to a 'consolidated text' or a self-standing concise declaration to which other parts could be annexed or cross referred to". The statement should be politically attractive, forward-looking and clearly focused. It should reaffirm the final documents of Rio, highlight the main achievements since UNCED at the international, national and institutional levels and the significant contribution made by the major groups. It should also address the vicious circle of poverty, lack of capacity and resources in developing countries, reiterate the need for changing consumption and production patterns, and focus strongly on implementation of commitments.

In 14 paragraphs, the report provides an assessment of progress reached after Rio. It states: "Five years after UNCED, the global environment has continued to deteriorate and significant environment problems remain deeply embedded in the socio-economic fabric of nations in all regions." Although progress has been made in terms of establishing institutions, international consensus building, public participation and private sector actions, and some countries have succeeded in curbing pollution and slowing the rate of resources degradation, overall trends have been worsening, it adds.

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The report identifies progress made by major groups and the efforts of local authorities in making Agenda 21 a reality. Achievements after UNCED include the entry into force of the conventions on climate change, biodiversity, anti-desertification, an agreement on straddling and migratory fish stocks, as well as the adoption of a Global Programme of Action on the Sustainable Development of Small Island Developing States and the elaboration of the Global Programme of Action for the Protection of the Marine Environment from Land-Based Activities. The role and contribution of the Sustainable Development Commission and of the Intergovernmental Panel on Forests are also recognized.

Concern is expressed over the lack of progress in the areas of finance and technology transfer and over the non-attainment of the target of 0.7 per cent of gross national product (GNP) for official development assistance (ODA) and the agreed United Nations target of 0.15 per cent of GNP for such assistance to the least developed countries. Further concern is expressed about the foreign debt situation as a major constraint to achieving sustainable development and the lack of implementation by developed countries of agreed commitments in Agenda 21 to foster the transfer of technology.

The report identifies among areas requiring urgent action those relating to eradicating poverty; changing consumption and production patterns; making trade, environment and sustainable development mutually supportive; human health; and sustainable human settlements. It is stressed that implementation of the Agenda 21 in those areas must be considered in the context of the integration of economic, social and environmental objectives. Other areas requiring urgent action include freshwater resources, oceans, forests, energy, transport, atmosphere, chemical and wastes, land and sustainable agriculture, desertification and drought, biodiversity, sustainable tourism, small island developing States and natural disasters.

The increasing stress on water supplies caused by unsustainable use patterns is highlighted. In the field of energy, reference is made to international cooperation for providing adequate energy services to unserved populations, using renewable energy sources. The need for an action-oriented international programme of work on sustainable tourism is stressed, as the tourism sector is identified as the largest industry and the fastest growing economic sector.

The key issues of financial resources and mechanisms, transfer of environmentally sound technologies, capacity-building, science education and awareness raising are also addressed. International legal instruments and the Rio Declaration are viewed as information tools to measure progress in achieving sustainable development. Stressing the urgent need to fulfil all financial commitments of Agenda 21, the text addresses matters related to

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private foreign capital and debt problems of highly indebted poorest countries. Concerning transfer of environmentally sound technologies, it calls for renewed commitment from developed countries to promote, facilitate and finance access to and transfer of such technologies.

The section on international institutional arrangements notes that the arrangements as outlined in chapter 38 of Agenda 21 will continue to be fully relevant in the period after the special session. It calls for the strengthening of various intergovernmental organizations and processes such as the Administrative Committee on Coordination Inter-Agency Committee on Sustainable Development and its system of task managers, as well as for the enhancement of the roles of relevant United Nations bodies, such as the United Nations Environment Programme (UNEP), the United Nations Development Programme (UNDP) and the United Nations Conference on Trade and Development (UNCTAD). The Commission would continue to provide a central forum for reviewing further progress in implementing Agenda 21 and other commitments made at UNCED and the Economic and Social Council should decide on the Commission's multi-year programme of work for 1998-2002, the draft text states.

Sustainable Forest Management: Proposals for Action, Lack of Consensus

The report of the Open-ended Ad Hoc Intergovernmental Panel on Forests (document E/CN.17/1997/12), is the outcome of its four sessions, held between 1995 and 1997. Established by the Economic and Social Council on the Commission's recommendation, the Panel was given the task to pursue consensus and formulate options for further actions in order to combat deforestation, and to promote the management, conservation and sustainable development of all types of forests consistent with the Non-Legally-Binding Authoritative Statement of Principles for a Global Consensus on the Management, Conservation and Sustainable Development of all Types of Forests adopted at UNCED.

Among the report's proposals for action to strengthen financial assistance to forest management, is a call for recipient countries to prioritize forest activities or development strategies to favour sustainable forest management in programming the ODA available to them. Donor countries and international organizations are urged to increase the proportion and availability of their ODA contribution to programmes supporting the sustainable management of all types of forests.

No consensus was reached by the Panel on the establishment of an international fund to support activities for the sustainable forest management of all types of forests, particularly in developing countries. Among options discussed were the following: whether to urge the establishment of such a fund; to invite the international community to discuss the proposal; or to pursue action to enhance funding in other ways. Also in the context of strengthening financial assistance, proposals for action were made on

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enhancing private sector investment. Action was also proposed for enhancing technology transfer and capacity-building, as well as improving information systems.

On the issue of trade and environment in relation to forest products and services, the Panel acknowledged the potential positive relationship between trade in forest products and services and sustainable forest management, while recognizing the wide range and complexity of the issues associated with the topic of trade and environmental policies. The Panel noted that international attention to the issues of the certification of forest management and labelling of forest products should be put into perspective.

The report further states that international efforts should focus on ensuring that existing and new certification and labelling schemes are open and non-discriminatory in respect of types of forest or forest products, forest owners, managers and operators. It stresses that such schemes should not be used as a form of disguised protectionism and should respect international obligations.

When it addressed the issue of market access for forest products, the Panel also could not agree on options for action relating to a possible agreement based on non-discriminatory rules and multilaterally accepted procedures. Among the proposals considered by the Panel were the following: to explore the possibility of an international agreement on trade in forest products from all types of forests; and to explore within an intergovernmental forum on forests the possibilities of promoting sustainable forest management of all types of forests and trade in forest products in the context of an international, comprehensive and legally-binding instrument on all types of forests.

Neither could the Panel reach consensus on the question of the relationship between obligations under international agreements and national measures, including actions imposed by subnational jurisdictions. The options for action proposed included: urging countries to remove all unilateral measures to the extent that those are inconsistent with international agreements; and urging countries to remove all unilateral bans and boycotts inconsistent with the rules of the international trade system, including those imposed by subnational jurisdictions, in order to facilitate the long-term sustainable forest management of all types of forests.

Among proposals relating to international organizations and multilateral institutions and instruments were a number of options for action at the intergovernmental level to continue the dialogue on all types of forests and monitor progress on its proposals for action.

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The Panel recommends continuation of the dialogue in existing forums, such as the Sustainable Development Commission and the Food and Agriculture Organization (FAO). Another option was to continue the intergovernmental policy dialogue on forests through the establishment of an ad hoc open-ended intergovernmental forum under the auspices of the Commission to monitor progress in the sustainable management of all types of forests, and promote the Panel's proposals for action. That suggested forum would possibly negotiate a legally-binding instrument and report to the Commission in 1999.

Agenda 21: Unfulfilled Expectations, Emerging Issues

Prepared as a background document for the Commission's deliberations, is a comprehensive report of the Secretary-General on overall progress achieved since UNCED (document E/CN.17/1997/2 and Adds.1 to 31). The main document provides a global assessment on issues related to economic growth, social development and environmental sustainability; an appraisal of progress since UNCED; the challenges and priorities ahead; and the institutional framework and the role of the Commission after 1997. The 31 addenda contain in over 300 pages a chapter-by-chapter review of progress in implementing the 40 chapters of Agenda 21. Chapters 23 to 32, addressing roles of major groups, have been combined (document E/CN.17/1997/2/Add.22).

Each report was prepared by the relevant task manager -- a United Nations body identified for the implementation of particular chapters. The addenda are structured, in general, to provide the key objectives of each chapter of Agenda 21, the progress achieved in its implementation, promising changes, unfulfilled expectations and emerging priorities.

The implementation of chapter 33 of Agenda 21, on financial resources and mechanisms, is analysed in detail (document E/CN.17/1997/2/Add.23). ODA and proposals for international tax schemes are highlighted as major unfulfilled expectations. Measured at 1994 prices and exchange rates, ODA decreased by 9 per cent between 1990 and 1995. In the case of the least developed countries, the average ODA decreased far below the 0.15 per cent target of the United Nations Programme of Action for the Least Developed Countries in the 1990s.

Regarding international innovative mechanisms, the report states that there is insufficient political will to go beyond the discussion of the technical details of international taxes such as a tax on air transport or an international carbon tax. The related emerging priorities, such as domestic resource mobilization and innovative financing mechanisms are referred to as examples of "unresolved issues in the debate on finance for sustainable development" which "outline to some extent the unfinished agenda at the national and international levels".

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Unfulfilled expectations and constraints as well as the challenges and priorities ahead regarding another issue of major concern -- the transfer of environmentally sound technologies, cooperation and capacity-building (chapter 34) -- are addressed in document E/CN.17/1997/2/Add.24.

Progress in Recognizing 'Common but Differentiated Responsibilities'

A report on the application and implementation of the 27-principles of the Rio Declaration on Environment and Development (document E/CN.17/1997/8) states that considerable progress in implementing certain principles has been achieved, especially during the past two years. Although the legal status of each of the principles varies considerably, some are firmly established in international law, while others are only in the process of gaining acceptance.

Addressing principle 7, which affirms States' duty to cooperate in a spirit of global partnership for conserving the earth's ecosystem and accept common but differentiated responsibilities for global environmental degradation, the report explains that the element of "common but differentiated responsibilities" is intended to promote a sense of partnership between industrialized and developing countries in dealing with environmental issues. States whose societies impose a disproportionate pressure on the global environment and which command high levels of technological and financial resources bear a proportionally higher degree of responsibility in the international pursuit of sustainable development.

Consequently, the report goes on, since UNCED a number of international agreements recognized a duty on the part of industrialized countries to contribute to the efforts of developing countries to pursue sustainable development and to assist them in protecting the global environment. Such assistance may include financial aid, transfer of environmentally sound technology and cooperation through international organizations. Such obligations are now integrated in the conventions on climate change, biological diversity and anti-desertification, and have also been affirmed by major international conferences since Rio. The principle has not been reflected in national legislation, but in national policies on international cooperation and on foreign aid.

Concerning principle 8, which calls on States to reduce and eliminate unsustainable patterns of production and consumption and promote appropriate demographic policies, the report notes that it addresses an area where the concept of common but differentiated responsibilities is clearly applicable, since unsustainable production and consumption patterns are generally found in developed countries, while in contrast, developing countries tend to have a greater rate of increase in population levels.

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Progress in consumption and production patterns has been achieved mainly at the national level, the report states. Many countries have adopted laws and regulations which contain regulatory, economic and social instruments and provide for, among other measures, environmental taxation, including differentiated energy taxes, eco-labelling, eco-audit procedures, product charges and pollution fines, emission standards and emission trading schemes, recycling regulations, and the use of environmental management systems.

Freshwater Resources, Critical Trends

Another report before the Commission provides a comprehensive assessment of the fresh water resources of the world (document E/CN.17/1997/9). The report states that "water has to be considered one of the main issues facing the world". In many countries the current pathways for water use are often not sustainable. It is predicted that by the year 2025 as much as two-thirds of the world population could face water stress conditions. The report provides policy options for reversing the negative trends of unsustainable use of water.

A report on critical trends on sustainable development (document E/CN.17/1997/3) reviews developments over the past 25 years and look into the future with the help of model-based projections and scenarios. It describes trends in population growth, socio-economic development and the environment as a "family of transitions". Although admitting limitations and shortcomings in that approach, it states that it may represent a promising and useful way of visualizing global change. The concept of transitions represents development pathways that have already been experienced by a number of countries and which provide insight into a range of likely futures, dependent on economic, social and environmental circumstances. Throughout the report there are threads of optimism regarding future trends.

Other Reports

Also before the Commission are two reports of the High-level Advisory Board on Sustainable Development at it sixth and seventh sessions (documents E/CN.17/1997/10 and E/CN.17/1997/17 and Add.1). The report of the Board's seventh session focuses on critical issues and policies for sustainable development: energy, transport and water resources. For each resource, the report examines policy measures for ensuring sustainable development, impediments to the application of such measures and policy packages that might overcome them. Annex II of the report of the Board's sixth session contains biographical information on its 18 members.

The High-level Advisory Board, set up pursuant to Assembly resolution 47/191 on institutional arrangements following UNCED, has the main task of giving broad consideration to issues related to implementing Agenda 21 and providing expert advice to the Secretary-General and through him to the Commission and the Economic and Social Council.

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Other documents include reports of the Secretary-General on: assessment of activities that pose a major threat to the environment (document E/CN.17/1997/4); assessment of progress in the implementation of Agenda 21 at the national level (document E/CN.17/1997/5); inventory of ongoing energy- related programmes and activities of entities within the United Nations system, on coordination of such activities and on arrangements needed to foster the linkage between energy and sustainable development within the system (document E/CN.17/1997/7); and implementation of the Programme of Action for the Sustainable Development of Small Island Developing States (document E/CN.17/1997/14). In addition, there is a note by the Secretary- General transmitting the report of the Executive Secretary of the Convention on Biodiversity on the implementation of that treaty (document E/CN.17/1997/11).

Background on Sustainable Development Commission

The Commission on Sustainable Development was set up in 1993 as a functional commission of the Economic and Social Council to ensure follow-up to UNCED as well as to enhance international cooperation and rationalize the intergovernmental decision-making capacity for the integration of environment and development issues. It was also mandated to examine progress in the implementation of Agenda 21 at the national, regional and international levels, fully guided by the principles of the Rio Declaration and with the aim of achieving sustainable development.

The Commission, which met annually at Headquarters for the past four years, has operated on the basis of a multi-year thematic programme of work based on clusters of chapters of Agenda 21, intended to ensure an integrated approach to all the environment and development components of the programme of action as well as linkages between sectoral and cross-sectoral issues.

The first substantive session of the Commission was held in June 1993. The current President of the Assembly, Razali Ismail (Malaysia), was elected its first chairman. The first session focused mainly in the Commission's functioning, including the multi-year thematic programme of work.

At its second session, in May 1994, the Commission, chaired by Klaus Topfer (Germany), discussed cross-sectoral chapters of Agenda 21, including trade, environment and sustainable development, consumption patterns and major groups. Sectoral issues taken up included human health, human settlements, freshwater resources, toxic chemicals and hazardous, solid and radioactive wastes.

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The Commission's third session was held in April 1995 and it had a revised format, which included panel discussions and dialogue among delegations. Chaired by Henrique Cavalcanti (Brazil), the third session examined planning and management of land resources, combating deforestation, combating desertification and drought, conservation of biological diversity, and transfer of environmentally sound technologies. At that session the Commission approved the establishment of the Intergovernmental Panel on Forests.

At its fourth session, in April/May 1996, the Commission completed its multi-year thematic programme of work and began considering preparations for the Assembly's special session. Rumen Gechev (Bulgaria) chaired the session.

Commission Membership

The 1997 membership of the Commission is as follows: Antigua and Barbuda, Australia, Bahamas, Bangladesh, Belgium, Benin, Bolivia, Brazil, Bulgaria, Burundi, Canada, Central African Republic, China, Colombia, Djibouti, Eygpt, Ethiopia, Finland, France, Gabon, Germany, Ghana, Guyana, Hungary, India, Indonesia, Iran, Ireland, Japan, Mexico, Mozambique, Netherlands, Niger, Pakistan, Panama, Papua New Guinea, Peru, Philippines, Poland, Russian Federation, Saudi Arabia, Senegal, Slovakia, Spain, Sudan, Sweden, Switzerland, Thailand, Ukraine, United Kingdom, United States, Venezuela and Zimbabwe.

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