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    A Strategy for Environment in Development Cooperation

    Historical archive

    Published under: Bondevik's 1st Government

    Publisher: Ministry of Foreign Affairs

    Guidelines/brochures | Date: 22/11/2000

    A Strategy for Environment in Development Cooperation

    Contents

    Summary

    Objectives and priorities

    The main objective of environmental assistance is to contribute to a "sound management of the global environment and biological diversity». The following four areas have been given priority:

    • Development of sustainable production systems
    • Conservation and sustainable use of biological diversity
    • Reduced pollution of soil, air and water
    • Preservation of cultural heritage and management of the natural environment's cultural values.

    The activities under each of these areas are specified in the strategy.

    Guidelines and delimitations

    The strategy for environmental assistance is based on Report no. 19 to the Storting and the guidelines set out there and the follow-up of international commitments in Agenda 21. The plans entail that Norwegian development assistance shall contribute to enhancing international cooperation in order to address the considerable global challenges we are facing by:

    • Participating in international negotiations and global processes
    • Supporting the participation of developing countries in international negotiations
    • Participating in the governing bodies of
      multilateral organisations in order to strengthen activities which combine environment and development
    • Supporting recipient countries' efforts to implement international environmental commitments and other national environmental priorities.

    Environmental assistance also aims at:

    • Integrating environmental concerns into all Norwegian-supported development assistance when this is relevant through an extensive use of environmental impact assessments
    • Establishing environment-specific programmes.

    The measures in these priority areas will vary in geographical areas and will be based on the recipient countries' level of development and the nature of the environmental problems. An important principle will be to contribute to enabling the recipient countries themselves to identify and implement the measures that are necessary to create sustainable development. This includes a strengthening of the countries' institutional capacity and professional competence by providing technical and economic possibilities for improved administrative and planning capacity in the environmental field in the recipient country. It also comprises support for the preparation and implementation of national environmental strategies and plans, the development of legislation and regulations, support for national priorities and the identification of environmental problems.

    The following guidelines apply to the four above-mentioned areas and apply irrespective of field, geographical location, funding method and participants. Emphasis shall be placed on strengthening:

    • The recipient country's institutional capacity in the environmental sector
    • Research and professional competence
    • Integration of environmental concerns into projects in sectoral programmes
    • Thematic concentration, based on the nature of the environmental problems, the recipient country's priorities and the special expertise and experience of Norwegian participants
    • Promote integrated environmental management,
    • Improve coordination, through bilateral and multilateral channels in order to achieve greater effectiveness, and at various levels locally, nationally, regionally and globally
    • Norwegian participants should be more involved (institutions, industry and voluntary organisations)
    • Use of various instruments (by combining e.g. institutional development, industrial cooperation, research and cooperation with multilateral and voluntary organisations).

    Practical implementation

    The environmental priorities entail, among other things, a greater focus on the sustainable use of natural resources and biological diversity instead of classical protection. The importance of a precautionary approach in the management and use of natural resources is emphasised. Poverty orientation, emphasis on the role of women in environmental and natural resource management as well as local participation are important elements of environmental assistance. The preservation of cultural heritage and protection of the natural environment's cultural values are a relatively new priority area.

    In multilateral assistance, emphasis is placed on:

    • Supporting and influencing various multilateral organisations to ensure that environmental policies which are formulated centrally are in line with Norwegian policy and are also reflected in the implementation of activities
    • Promote the integration of environmental concerns through multilateral/bilateral support and co-financing
    • Support recipient countries' participation in negotiations and implementation of international agreements
    • Support pilot projects which can demonstrate the relationship between ecologically sound management of natural resources and increase in the population's welfare
    • Combine the use of aid funds and contributions via the Global Environment Facility (GEF)
    • Contribute to the implementation of various conventions and promote technology transfer and capacity-building in accordance with Norwegian commitments
    • Coordinate Norwegian views in order to achieve better national accord between the policy conducted by various specialist ministries, in various fora and in development assistance policy.

    In bilateral development assistance, emphasis is placed on taking environmental aspects into account in all budgetary allocations: country programme, regional allocation, pure environmental measures and research, etc.

    There are particularly two major programmes today which are directly focused on the environment in development assistance. The aim of the programme: "special grant for environment and development" is to:

    • Contribute to strengthening the recipient country's institutional and technical/economic capacity for integrating environmental considerations into its development and to complying with international environmental commitments
    • Contribute to enhancing knowledge and professional competence in the recipient country in the field of environmental problems and the relationship between environment and development.

    The programme: "special grant for expanded environmental cooperation" (Chapter 0155, Item 71) was started in 1995 and primarily covers countries in Asia. The aim of this grant is to:

    • Establish priority areas for environmental cooperation (including global and regional problems as well as cooperation in the environmental technology field) with recipient countries
    • Strengthen the recipient country's institutional capacity and technical/economic basis for integrating environmental concerns so that the countries themselves are in a position to solve their own environmental problems and to fulfil international commitments.

    Research support includes research assistance for enhancing expertise in developing countries and support for research on development issues in Norway in the above-mentioned areas. An objective is to strengthen professional competence in the South based on developing countries' needs and priorities.

    In multilateral and bilateral assistance, the activities in trade and environment are concretised by:

    • Supporting measures which help to secure developing countries' interests and participation in discussions and negotiations on trade and environment.

    In the area of emergency and disaster assistance, the activities are concretised by:

    • Providing emergency and disaster relief which does not have a negative impact on the environment and natural resources in the area refugees (migrants) are moving to or from
    • Contribute to enabling the authorities to analyse, study and plan measures before the occurrence of possible disasters (early warning systems).

    The Ministry is drawing up rules for quality assurance in development assistance. This work is being carried out in cooperation with NORAD (Norwegian Agency for Development Cooperation) in order to ensure optimal results. Furthermore, the development assistance administration shall:

    • Strengthen environmental efforts in bilateral and multilateral projects
    • Develop administrative procedures to ensure that the guidelines in this strategy are observed
    • Improve the project cycle with a particular emphasis on developing and evaluating alternative projects at the beginning of the project cycle
    • Develop methods and/or procedures in order to integrate the role of women into the planning and implementation of environmental projects
    • Ensure that environmental impact assessments are carried out before a decision is made on financing
    • Evaluate the results of a project compared with development and project objectives (quality assurance).

    In order to integrate environmental issues into ongoing development assistance, it is important to:

    • Ensure that environmental considerations are incorporated in strategies for the various assistance areas
    • Ensure that sufficient emphasis is placed on environmental concerns in decisions on individual projects
    • Ensure that sufficient environmental expertise and capacity are developed in NORAD,
    • Training of personnel (NORAD and Ministry of Foreign Affairs)
    • Strengthen the contact with and use of the environmental network in Norway.

    The annex to the strategy indicates certain choices and preconditions for bilateral environmental assistance.

    Strategic guidelines

    1. Introduction and preconditions

    1.1 Follow-up of Report no. 19 to the Storting (1995-96)

    The Ministry wants to present a coherent strategy for environmental assistance in order to follow up Report no. 19 to the Storting (1995-96) "A changing world" and the Storting's recommendations concerning the report (Recommendations S no. 229). Report no. 51 to the Storting (1991-92) and "Report from the Commission on North-South and Aid Policies" (NOU 1995:5) come in addition. In the latter two, importance is attached to "promoting a sound management and utilisation of natural resources and a minimum burden on common resources (air and water)" (NOU 1995:5, p. 30). Environmental protection and resource management are among the most important elements in Report no. 19 to the Storting as well as in the follow-up of international commitments in the UNCED process (Rio de Janeiro 1992) in Agenda 21.

    1.2 International and global processes, commitments and conventions

    Agenda 21 is the international action plan for sustainable development into the next century. It emphasises that poverty and environmental degradation represent the greatest challenges facing developing and industrial countries today. The action plan deals with the utilisation of natural resources and measures in key environmental and development sectors. The plan is based on the principle that in order to achieve environmental gains all measures must be compatible with social and economic development, and safeguard the right of co-determination and participation of the groups affected in processes which influence their situation. The plan represents a broad common platform for international development cooperation in the years ahead. It is assumed in Agenda 21 that most of the resources that are required to ensure sustainable development must be mobilised from domestic sources. An important result of the Rio process is also the principle of "common but different commitments», which implies some burden sharing internationally, including transfers of resources (e.g. aid) for a satisfactory follow-up of the action plan in developing countries. The UN Commission for Sustainable Development (CSD) has been given the mandate to follow up Agenda 21.

    In the wake of the UNCED meeting the relationship between trade and environment was placed on the agenda in the GATT/WTO because of the desire to reduce the risk of disputes between states in the relationship between trade and the environment, negative environmental consequences of free trade or the use of environmental arguments as hidden barriers to trade.

    During the UNCED meeting a number of countries signed the Convention on Climate Change (1992) and the Convention on Biological Diversity (1992). Many developing countries are signatories to these conventions as well as a number of other international agreements which impose obligations with regard to a sound management of natural resources and the environment. Among these are: The Convention on Desertification (1994) which attaches importance to the development of national, subregional and regional action programmes to combat a deterioration in arid agricultural areas, particularly in Africa. The Montreal Protocol (1987) followed up by the Vienna Convention seeks to protect the ozone layer. The Basle Convention (1989) deals with the monitoring and control of hazardous waste. The FAO's Code of Conduct for Responsible Fisheries (1995) and the UN agreement on Fishing in the High Seas (1995) establish important guidelines for assistance in the fisheries area. A Panel on Forestry has been appointed to examine all issues related to the protection and sustainable use of forests. The results of the Food Security Summit: Global Plan of Action (1996) figure prominently in relation to the development of sustainable production systems. In the social sphere it is necessary to take into account: the Conference on Population in Cairo (1994), the Social Summit in Copenhagen (1995) and the Conference on Women in Beijing (1995). The World Heritage Convention is formally not a part of the Rio umbrella, but it will be important to take this into account along with the Habitat II-City Summit and the Global Plan of Action for plant genetic resources in 1996. Several of the global conventions also cover development aspects, which make it imperative to secure optimal accord between commitments in the conventions and the guidelines in development assistance policy.

    1.3 Preconditions for development assistance policy

    An objective of Norwegian development assistance policy is to enable the recipient to identify environmental problems, formulate national priorities and make decisions both nationally and internationally.

    Moreover, it is an objective to ensure local participation in the identification, planning, implementation and evaluation of projects and programmes. The efforts shall, among other things, contribute to securing basic requirements and improving the living conditions of the poorest segments of the population. Participation is particularly important in situations where conflicting interests can easily arise. Indigenous peoples are in a special position and their rights to land and natural resources must be legally safeguarded.

    Women have a key role as managers of many natural resources in developing countries. Women also constitute a steadily rising share of the poorest groups. Efforts to combat poverty and emphasis on the role of women in economic development therefore require that women participate in the planning and implementation of projects and programmes. This principle shall apply in all environmental projects and projects where women traditionally have or in the future may have a key role.

    The principle of poverty orientation shall be applied in environmental assistance. As a rule, pollution and the degradation of the natural environment affect the poorest groups most severely. Even today environmental problems such as the pollution of air and water are important causes of reduced life expectancy in many developing countries. In the longer term climate change, emissions of harmful environmental substances and the loss of biodiversity will probably have a disproportionately severe impact on the poorest groups. It is important to identify the development measures which will have a positive effect on the environment and improve the living conditions of the poorest groups.

    1.4 Users of the strategy

    The users of the strategy are the Ministry of Foreign Affairs, NORAD, embassies which administer assistance measures as well as the environmental administration, voluntary organisations and other institutions, etc. that are involved in aid-financed environmental measures in developing countries.

    2. Objectives and strategic choices for environmental assistance

    2.1 Objectives, delimitations and sub-objectives

    In Report no. 19 to the Storting (1995-96) the overriding objective for integrating the environment into Norwegian development assistance is to:

    • Contribute to a sound management of the global environment and biological diversity.

    Four main environmental areas have been given priority:

    • Development of sustainable production systems
    • Conservation and sustainable use of biological diversity
    • Reduced pollution of soil, air and water
    • Preservation of cultural heritage and management of of the natural environment's cultural values.

    Sub-objectives:

    For Norway, it is important that our development assistance policy can help to strengthen international cooperation in order to address the global challenges facing the world by:

    • Participating in international negotiations and global processes, as well as in the elaboration of conventions/treaties
    • Supporting the participation of developing countries in international negotiations
    • Participating actively in the governing bodies of multilateral organisations in order to improve the coordination of environmentally-oriented activities and strengthening activities which combine environment and development
    • Supporting the recipient countries' efforts to implement international environmental commitments and other national environmental priorities.

    In this strategy it is not appropriate to set quantitative targets in money terms as to how much assistance shall be provided for various environmental measures. The measures are instead linked to processes and results to enable the recipient countries to improve the management of the environment. This includes strengthening the countries' institutional capacity and their technical and economic possibilities for improving the management of the environment. Environmental assistance is aimed at:

    • Integrating environmental considerations into all Norwegian-supported development assistance when this is relevant.

    The principle of integrating environmental considerations into all Norwegian-supported development assistance shall be maintained and strengthened. This applies to both multilateral and bilateral assistance. This can be accomplished by:

    • Establishing environment-specific programmes.

    These programmes shall be catalysts for enhancing the recipient countries' capacity and willingness to integrate environmental concerns into their development efforts and may also cover measures to combat environmental problems which are transboundary in nature.

    2.2 Environmental delimitations and priorities

    Environmental assistance is a comprehensive and resource-demanding field which can often entail considerable conflicting interests in the recipient country. Within the limited framework of Norwegian development assistance, it is important to establish clear delimitations and priorities. In Report no. 19 to the Storting (1995-96) this is accomplished by concentrating environmental assistance on four main areas which are referred to under 2.1. These are discussed in detail below in points 2.2.1-2.2.4. There are no sharp dividing lines between these main areas. The authorities and administrative system of the recipient country are of decisive importance in environmental management. Assistance for institution-building and increased environmental expertise in the administration as well as for the preparation of legislation, maps and databases for use as planning tools should therefore figure prominently. It is also important to ensure that interest groups are heard when important decisions which affect them are to be taken.

    The environmental priorities in this strategy entail a greater focus on the sustainable use of natural resources and biodiversity instead of classical protection. This entails, for example, greater efforts focused on the primary industries. The importance of a precautionary approach in the management and use of natural resources is emphasised to prevent overexploitation and pollution rather than attempting to repair the damages once they have arisen. The environmental situation in a number of recipient countries will, however, require efforts to remedy existing environmental problems. Moreover, importance is attached to environmental concerns and environmentally sound solutions in the energy supply and manag-ement sector, where Norway is active. The strategy also entails a greater emphasis on environmental problems in urban areas, such as water supply, sanitation, waste and air pollution.

    The following guidelines are general for the four main areas and apply irrespective of field, geographical location, channel and participants:

    • The recipient country's institutional capacity in the environmental sector. Measures for building up the environmental administration at all levels in recipient countries are important. When relevant, local groups should participate in decision-making processes which directly affect them
    • Research and development of professional competence. Efforts must be made to identify (possibly new) environmental research subjects in order to increase research competence and solve practical environmental problems
    • Sectoral integration. The environmental aspect must be integrated into the recipient countries' regular development projects. Support should be given to the integration of environmental cocerns in projects within sectoral programmes. This also applies to measures under industry arrangements
    • Integrated environmental management. It is imprtant to develop systems which take into account different, but overlapping conditions and provide maximum environmental gains in an area (e.g. sustainable production systems and measures for biodiversity)
    • Coordination. Efforts must be coordinated in order to achieve effectiveness, breadth and scope in environmental assistance. This applies to different levels locally, nationally, regionally and globally. Recipient countries should be placed in a position to coordinate the measures in relation to donors
    • Use of Norwegian participants. In order to achieve increased environmental assistance, Norwegian participants must be involved on a broader basis (institutions, industry and voluntary organisations)
    • Use of various instruments. It will be important to combine various instruments such as institutional development, industry cooperation, research and cooperation with multilateral and voluntary organisations in order to tackle a number of causes of a given environmental problem (e.g. The Sudan-Sahel-Ethiopia-programme model 1985-96). In a transitional period, earmarked environmental grants will be of considerable importance (chapter 4.2).

    Important tools for the work within all these environmental areas are:

    • Environmental impact assessments (the analysis shall include socio-cultural conditions and the role of women)
    • Legislation (establishment of legislation and environmental standards)
    • Establish/further develop national administrative bodies (which can follow up the legislation)
    • Resource identification
    • Land-use planning.

    2.2.1 Development of sustainable production systems and management of natural resources

    I. Background

    Natural resource management encompasses biotic (living) resources such as flora and fauna, abiotic (non-living) elements such as water, air and minerals as well as land management. Oil and gas are important natural resources in a number of Norway's partner countries for development assistance. Norwegian environmental efforts in this field will to a greater extent be focused on pollution issues and safety (chapter 2.2.3).

    II. Priority areas

    • Preparation and implementation of national action plans for the implementation of international and regional agreements
    • Strengthening institutional and professional capacities which ensure a sound management of natural resources. The development of legislation which regulates the use of land and property and user rights to natural resources is important in this connection
    • Sustainable agriculture. Support should be given to projects whose objective is to contribute to reducing poverty and increasing food security. This can be accomplished by promoting increased and varied agricultural production, based on sustainable management, the protection of soil and water resources as well as biodiversity
    • Management of forests and uncultivated areas, with a particular emphasis on multiple use
    • Integrated coastal zone planning so that user interests in coastal areas can be systematically weighed and balanced
    • Water use plans should cover entire catchment areas and include mapping, monitoring, analyses, a clarification of property and user rights to and the future use of water resources. Measures for a better and more efficient use of fresh water should be supported
    • Living marine resources. Conditions must be created for a sustainable utilisation of living marine resources. Key elements in this connection are resource mapping, the regulation of fishing based on scientific studies and the precautionary principle, control and enforcement. The food chain in oceans must be seen as a whole, and emphasis should be placed on multiple stock management
    • Research related to sustainable production systems and natural resource management
    • Measures for environmentally sound energy management, an efficient use of energy and environmentally sound forms of energy.

    2.2.2 Conservation and sustainable use of biological diversity

    I. Background

    Biological diversity is the basis for life-sustaining ecological systems which regulate the climate, form soil and clean water and air. Biological diversity is a basic prerequisite for agricultural development as well as food and commodity-based industrial production. A large part of the world's biological diversity is found in developing countries and is exposed to substantial, irreversible destruction. This includes the destruction of ecosystems and species as well as genetic variation within each species.

    Countries which have ratified the Convention on Biological Diversity (1992) (includes most of Norway's partner countries) have undertaken commitments to draw up national action plans for the conservation and sustainable use of biological diversity. Developing countries can receive support for measures which have beneficial global effects (through the GEF). In most developing countries the national and local importance of biological diversity for the population's livelihood and future development possibilities will be of greatest importance. Development aid funds may play an important role here.

    II. Priority areas

    • Implementation and follow-up of developing countries' commitments under the Convention on Biological Diversity and other international nature conservation agreements should be supported This also applies to participation in relevant international processes
    • Contribute to the preservation of genetic diversity when this is an important resource base for sustainable development in the primary industries. A high-priority task is therefore to support the protection of genetic material both in the field and in local, national and regional gene banks as well as in plant and animal breeding
    • Support to measures for the protection and sustainable harvesting of wild flora and fauna which are based on the ecosystem level and integrated and coherent planning. The elements of biodiversity which should be given priority must be assessed from one country to another
    • Support for monitoring and control in connection with the introduction of diseased organisms, pests, weed species and higher forms of animal life, as well as genetically modified organisms, will be important both in environmental efforts and in relation to international trade. These are aspects which should be emphasised in organisations which have the mandate to draw up guidelines for this, e.g. the FAO
    • Research pertaining to the relationship between biodiversity and sustainable production processes
    • Measures that are initiated by or directly involve local population groups (particularly indigenous populations and their user rights).

    2.2.3 Reduced pollution of soil, air and water

    I. Background

    Measures to combat pollution will vary in different areas, both based on local environmental conditions and each country's level of development and degree of industrialisation. The integration of issues linked to pollution and health figures prominently (e.g. energy, agriculture, industry, health, water management, transport). Pollution problems must be tackled from several aspects, e.g. through the development/strengthening of institutions, programmes to increase awareness, the involvement of the private sector, the transfer of know-how combined with technology transfer and investment projects, etc.

    II. Priority areas

    • Preparation of action plans for the implementation of international and regional agreements
    • Strengthening and development of the environmental protection administration, including the preparation of pollution laws and accompanying regulations, environmental standards, licensing systems, control routines, the development of strategies, action plans and use of instruments
    • Support for the implementation of integrated projects with the aim of limiting the environmental effects resulting from the use of pesticides and chemical fertiliser as well as the development of alternative biological methods for combatting pests and insects
    • Support for transboundary and global issues such as greenhouse gases, particularly for recipient countries experiencing strong industrialisation
    • Measures to combat industrial pollution in selected industries where Norway has special qualifications. Overall efforts should be focused on purer technology and production and increasing energy efficiency
    • Measures in urban areas focused on improving the living conditions of the poorest segments of the population, with an emphasis on health and environment. Coordinated planning of land use and the transport system should be given high priority along with the improvement of the basic infrastructure such as water supply, sewerage, and waste management, with an emphasis on solutions which involve the population
    • Support for measures to combat oil pollution.

    2.2.4 Preservation of cultural heritage and management of the natural environment's cultural values

    I. Background

    Cultural heritage and areas of cultural interest are irreplaceable sources of knowledge about human life and activities through the ages. They provide identity, experience and a greater understanding of the relationship between the past and future, between humanity and nature and between different cultures. Cultural heritage and areas of cultural interest are non-renewable resources. This obligates us to manage them with respect for earlier generations and with consideration for current and future generations.

    It is important to work towards a coherent environmental protection policy with the preservation of cultural heritage as an integrated component. The starting point for these efforts is twofold. First, the protection of cultural heritage involves fundamental environmental values at a global level. Second, cultural heritage itself represents a knowledge base and diversity which are an essential part of the basis for sustainable development, consumption and production.

    It is an important goal in international cooperation to protect the cultural heritage against misuse and destruction and to protect and activate what is a manifold resource for current and future generations.

    Cultural heritage and areas of cultural interest must be included as an integrated component of environmental assistance, and be used and managed so that the values inherent in them are protected and activated as a contribution to sustainable development. Safeguarding and preserving cultural heritage and areas of cultural interest must have a relevant geographical, social, ethnic and appropriate scope. Assistance in this area shall contribute to safeguarding cultural rights, exchanging knowledge and establishing institutional and administrative mechanisms for the preservation of cultural heritage. The activities must, however, be delimited in relation to measures included under the grant for cultural support.

    II Priority areas

    Along with strategic choices it is important that efforts in this area are viewed in connection with the other main priority areas in environmental assistance. It is natural to give priority to efforts aimed at:

    • Implementation and follow-up of recipient countries' commitments under the Convention for the Protection of the World Cultural and Natural Heritage (1972)
    • Contribute to enhancing institutional and professional capacities which ensure administrative structures for the preservation of cultural heritage
    • Help to ensure that important sectors accept an independent responsibility for the management of cultural heritage and areas of cultural interest (through e.g. environmental impact analyses)
    • Contribute to the integration of the preservation of cultural heritage in national action plans
    • Contribute to the development of models for sustainable tourism in prioritised areas of cultural interest (Agenda 21)
    • Contribute to the sustainable use and development of historical cities and areas of cultural heritage (Habitat II, Urban Sustainable Development)
    • Support sustainable production and consumption systems through knowledge about traditional building customs, use of materials and crafts.

    Implementation of the strategic guidelines

    3. International environmental cooperation and environmental assistance

    Participation in international processes for following up Agenda 21 takes place through the CSD, through a number of international negotiations and in multilateral governing bodies. Through Norwegian participation, attempts are made, in cooperation with other countries, to negotiate agreements and contribute to formulating the international community's policy for sustainable development. It is therefore necessary to ensure that the decisions which Norway has participated in approving in the conventions are in practice also implemented in bilateral and multilateral development assistance. Development assistance must to the greatest possible extent underpin the overriding objectives of international efforts. This can be ensured in the following way:

    • By clarifying how development assistance can underpin global environmental agreements, while at the same time adhering to the goals of Norwegian development assistance
    • For measures that are not directly focused on the environment, routines should ensure that these do not unnecessarily contribute to environmental problems (technology and environmental impact assessments).

    4. Channels and coordination of environmental assistance

    4.1 Multilateral environmental assistance

    A strategy for environmental assistance includes cooperation in order to satisfy international environmental agreements and participation in international environmental cooperation. The activities in multilateral assistance are concretised by:

    • Supporting and influencing various multilateral organisations to help to ensure that environmental policies which are formulated centrally are in accordance with Norwegian policy and are also reflected in the implementation of activities at country level and in the field
    • Supporting multilateral organisations' efforts aimed at the integration of routines for environmental impact assessments
    • Promoting the integration of environmental considerations in multilateral projects and programmes through multilateral/bilateral support and co-financing
    • Supporting measures which ensure developing countries' participation in connection with negotiations and implementation of international agreements, including trade and environment
    • Coordinating activities via bilateral and multilateral environmental assistance to achieve greater effectiveness and, when appropriate, combine Norwegian development assistance activities with other relevant international funding mechanisms
    • Supporting pilot projects which can demonstrate the relationship between ecologically sound natural resource management and increase in the population's welfare
    • Combining the use of aid funds and contributions via the GEF
    • Contributing to the implementation of the various conventions and promoting technology transfer and capacity-building in accordance with Norway's commitments
    • Coordinating Norwegian views to achieve better national accord between the policy being conducted by various specialist ministries, in various fora and in development assistance policy.

    Development assistance for the environment and sustainable development, including areas such as biological diversity and climate-related technology transfer, should be more transparent in the statistics compiled for Norwegian development assistance.

    4.2 Bilateral environmental assistance

    The guidelines presented in chapter 2 shall apply to all the following channels in bilateral assistance:

    • Country programme

    In the elaboration of a country programme greater importance shall be attached to environmental conditions. The need for improving environmental expertise in areas where Norway contributes considerable investments in sectors such as energy and manufacturing should be included in country programme negotiations. Recipient countries can be given assistance in identifying their needs and drawing up proposals for environmental projects. Special importance should be attached to making use of and strengthening the implementation of national environmental action plans.

    • Regional allocation

    The regional allocation will to a greater extent be used for regional environment-related projects, e.g. where several countries share responsibility for the management of natural resources (waterways and fish stocks in oceans and larger lakes).

    • Special grant for environment and development (Chapter 0155, Item 70)

    The special grant for environment and development has been and shall continue to be a catalyst in efforts to promote ecologically sustainable development in accordance with the objectives and guidelines laid down in Report no. 51 to the Storting (1991-92).

    The OBJECTIVES of the special grant for environment and development are to:

    • Contribute to strengthening the recipient country's institutional capacity and technical/ economic basis for integrating environmental considerations into its development and to fulfilling international environmental commitments
    • Contribute to enhancing knowledge and professional competence in the recipient country with regard to environmental problems and the relationship between the environment and development (including improved methods for locally adapted solutions).

    Priority activities will in principle follow the areas discussed in chapter 2 above and the following shall be emphasised:

    1. Development of sustainable production systems and measures to preserve biological diversity should be given priority in development assistance for both economic and ecological reasons. Efforts to improve the production base in primary industries are important (agriculture, forestry and fisheries, including targeted efforts to preserve the sectors' biological diversity), measures to limit the use of pesticides, etc. Long-term efforts in drylands (SSE) shall continue to be given priority.
    2. Institutional development and capacity-building.
    3. Sustainable energy systems.
    4. Preservation of cultural monuments is an integrated part of environmental assistance and the area should be gradually developed.
    5. Water supply, sewerage and waste management should be emphasised, also in urban areas. Management and direct technical measures may be appropriate.
    6. Industrial pollution and the disposal of hazardous waste will be relevant in some cases. Cooperation with Norwegian industry and trade associations should be evaluated.
    • Geographical delimitation

    Funds for these measures shall be used in countries which the OECD/DAC define as low-income countries. Most of the funds will therefore be allocated to Norway's partner countries in Africa, Central America and to some extent South Asia. Environmental measures in the poorest countries shall primarily be financed by funds from the ordinary country/regional allocations and/or through multilateral development assistance/co-financing.

    • Programme follow-up

    NORAD must draw up guidelines, performance targets and indicators which can form the basis for implementation, quality assurance and any evaluation of the special grant (Evaluation Report 5.91 "The Special Grant for Environment and Development" and Evaluation Report 5:95 "Integration of Environmental Concerns into Norwegian Bilateral Development Assistance - Policies and Performance»).

    • Special grant for expanded environmental cooperation (Chapter 0155, Item 71)

    A programme for expanded environmental cooperation should be flexible to ensure Norwegian particiption in priority areas for international environmental cooperation. It is necessary to evaluate how the programme can contribute to following up the recommendations of the UN's International Panel on Forestry (IPF), the Special Session of the UN General Assembly in June 1997 (UNCED + 5) and the FAO's Global Plan of Action for plant genetic resources (GPA). This type of support should not be limited to Norway's traditional main partner countries.

    Expanded environmental cooperation should also contribute to solving environmental problems of a transboundary and global nature, including climate measures, the conservation and sustainable use of biological diversity, regional air pollution, reduced effluent discharges into the sea, etc. Cooperation presupposes that the countries themselves conduct a policy which contributes to achieving important environmental objectives.

    The programme shall be used for the implementation of environmental measures, research, resource mapping, technology transfer and management, through government authorities, the business sector and private organisations. The grant can also be used for feasibility studies, infrastructure investments and training support in connection with investment projects. Industrial pollution is a considerable problem and support to the environmental administration, cleaner technology projects and environmental management in manufacturing is relevant. Support for various measures aimed at cleaner production in primary industries will also figure prominently in this allocation. Many countries have extensive environmental legislation, but lack the administrative capacity to implement this legislation. It is therefore necessary to support efforts to enhance administrative and professional capabilities both nationally and in the local government sector.

    The OBJECTIVES of the grant are to:

    • Establish priority areas for environmental cooperation (including global and regional problems as well as cooperation in the environmental technology field) with recipient countries
    • Strengthen the recipient country's institutional capacity and technical/economic basis for integrating environmental concerns so that the countries themselves are in a position to solve their own environmental problems and to fulfil international commitments.

    The priority activities will in principle follow the areas discussed in chapter 2 above and the majority in the Standing Committee on Foreign Affairs' report (Recommendations S. no. 229 1995-96) which points out that "the main efforts must be focused on areas that are of particular importance to the life situation of poor groups». It goes on to state, however, that "for countries which have overcome the most fundamental problem of poverty it will be important to ensure that economic development is based on ecological sustainability and a sound management of natural resources». The following activities will be emphasised:

    1. Water supply, sewerage and waste management should be emphasised, particularly in urban areas. Management and direct technical measures may be appropriate
    2. Industrial pollution and the disposal of hazardous waste should comprise both technology transfer and measures aimed at strengthening professional and institutional capacities. Oil spill contingency plans and monitoring of oceans are areas where Norway possesses special expertise (incl. the Nansen Programme)
    3. Efficient use of energy resources
    4. Conservation and sustainable use of biological diversity both as separate projects and in connection with infrastructure development
    5. Pesticide use, i.e. the development of instruments and methods for reduced use
    6. Preservation of cultural monuments
    7. Land-use planning and a strengthening of administrative capacity are given priority when this is appropriate.
    • Geographical delimitation

    Funds shall be used in countries which the OECD/DAC define as lower middle-income countries or lower (cf. Report no. 19 to the Storting). Recipients will primarily be developing countries in Asia which fall within the abovementioned categories. In addition, the grant may be used in South Africa, and in some cases in Central America.

    • Cooperation

    The active participation of the Norwegian administration, organisations and institutions, the business sector and voluntary organisations in planning and implementation is important. Some geographical and professional concentration is considered necessary to safeguard quality and the upgrading of professional skills over time. In order to support the enhancement of environmental expertise, Norwegian institutes should be involved in cooperation with local research institutions. The environmental agreements with China (1995), Indonesia (1992), India (1990) and South Africa (1997) are examples of a type of agreement developed by the environmental and development assistance administration in order to ensure a long-term dialogue and transfer of expertise.

    • Financing

    The grant can be combined/co-financed with other development assistance allocations or funds from multilateral channels. This entails that specific measures under the programme can combine gifts with commercial financing. The latter will be used in particular in connection with technology transfer and for countries that have reached a development level which makes it natural to require self-financing. It should be the aim to make use of the possibilities for combining the grant with international funding mechanisms and institutions when this is appropriate. Development financing should be such that it paves the way for subsequent cooperation on a commercial basis, and entails that assistance is unnecessary.

    • Evaluation of the programme

    Recommendations S. no. 229 (1995-96) points out that "the grant for expanded environmental cooperation" should be of more limited scope. It is important to note that "the Storting shall be able to control any possible links between business arrangements and environmental allocations" (Recommendations S. no. 229 1995-96). The allocation shall be evaluated after a period of 3-5 years (Recommendations S. no. 229 1995-96). NORAD must draw up guidelines, performance targets and indicators that can form the basis for this evaluation.

    4.3 Environmental research and development of professional competence

    Most international environmental research in Norway is financed by sources other than the development assistance authorities. The financing of the development assistance authorities' support to research includes research assistance to develop expertise in developing countries and support to research on development issues in Norway in priority areas for Norwegian development assistance.

    The programmes focused on specific subjects are administered by the Research Council of Norway. Examples of environmental research programmes are:

    • Development-related fisheries research
    • Forced migration, resource conflicts and development

    Research cooperation between research institutions in developing countries and Norway is also financed, and is administered by the University Council through NUFU (National Committee for Development Research and Higher Education). This research programme consists of several projects in agriculture and natural resource management. International research cooperation in the agricultural sector is also supported via CGIAR (Consultative Group for International Agricultural Research).

    An objective of both research assistance and research cooperation is to strengthen expertise in the South based on the needs and priorities of developing countries. South-South cooperation and network development will be key instruments for achieving this. With regard to development research in Norway, greater importance will be attached to enhanced dissemination and use of the results in the period ahead.

    It is proposed that environmental research and the development of expertise in the development assistance administration, which today are relatively limited, be strengthened. Research assistance and research cooperation should primarily be based on recipient countries' own priorities and follow up their international commitments. In this connection greater emphasis should be placed on the four environmental areas mentioned above (chapter 2) as well as cross-sectoral subjects such as environmental management, complex environmental problems and resource mapping. Greater demands will be placed on a targeted use of research funds. Norwegian institutes should be increasingly involved in international cooperation and be drawn more closely into the cooperation with relevant research institutes in recipient countries.

    Environmental research and the development of expertise will be some of the main areas in the work on developing the Ministry of Foreign Affairs' strategy for research and the development of expertise in connection with Norway's relationship to developing countries. As part of the follow-up of this strategy, a continuation of the socalled environmental competence programme under the auspices of the Research Council of Norway will be evaluated.

    4.4 Trade and environment

    Norway attaches considerable importance to the work on trade and environment. Efforts are being made to ensure that WTO rules and international environmental agreements shall underpin each other in order to contribute to sustainable development. Assistance should be granted to organisations that work on trade and environment and to promote the participation of developing countries in negotiations. Norway has contributed to a fund in the WTO to enable the poorest countries to fulfil their obligations in the organisation. Parts of this fund can be used for environment-related
    trade measures.

    In multilateral and bilateral assistance the activities are concretised by:

    • Supporting measures which help to secure developing countries' interests and participation in discussions and negotiations on trade and environment.

    4.5 Emergency and disaster assistance

    In the area of emergency and disaster relief, the activities are concretised by:

    • Providing emergency and disaster relief which does not have a negative impact on environmental and natural resources in the area refugees (migrants) are moving to or from.
    • Contributing to enabling the authorities to analyse, study and plan measures before the occurrence of possible diasters (early warning systems).

    It is important to link Norway's relief efforts to the work being done on a multinational level. Furthermore, it is important to link Norwegian-financed emergency and disaster relief to long-term environmental assistance.

    5. Consequences for the development assistance administration

    There are two evaluations which describe how environmental aspects are integrated into Norwegian development assistance (Evaluation Report 5.91 "The Special Grant for Environment and Development" and Evaluation Report 5.95 "Integration of Environmental Concerns into Norwegian Bilateral Development Assistance Policies and Performance»). In addition, there is the OECD/DAC's report on Norway in the "Survey of Aid Agencies' Activities in Support of Environmental Goals" (1996). In the follow-up of Report no. 19 to the Storting, the Standing Committee on Foreign Affairs has pointed to the need for "increasing both capacity and professional competence in the field of environmental issues" (Recommendations
    S. no. 229, 1995-96). The conclusions of these reports are included in the points below.

    5.1 Quality assurance

    The Ministry draws up rules for quality assurance in development assistance. This is carried out in cooperation with NORAD in order to ensure optimal results. The work on improved reporting of results figures prominently and NORAD has established a performance follow-up unit.

    The majority in the Standing Committee on Foreign Affairs (Recommendations S. no. 229 1995-96) pointed out that "greater emphasis must be placed on the preparation of environmental impact assessments before the projects are initiated». In the work on integrating environmental aspects into development assistance and further developing the project portfolio it is important that quality assurance also takes place at the first stages of the project procedure, in the design and choice of projects (Evaluation Report 5.95).

    Moreover, the development assistance administration shall:

    • Strengthen the environmental focus in bilateral and multilateral projects
    • Develop administrative procedures to ensure that the guidelines in this strategy are observed
    • Improve the project cycle with particular emphasis on developing and evaluating alternative projects (pre-project phase) at the beginning of the project cycle
    • Develop methods and/or procedures in order to integrate the role of women into the planning and implementation of environmental projects
    • Ensure that environmental impact assessments are carried out before making a decision on financing; it is important that "decisions concerning projects with environmental effects shall not be initiated without complete environmental impact assessments" (Recommendations S. no. 229 1995-96)
    • Evaluate/analyse the results of a project compared with development and project objectives (quality assurance).

    5.2 Administrative strengthening and distribution of responsibilities

    The evaluation of bilateral development assistance (Evaluation Report 5:95) pointed to the need for an administrative strengthening of the development assistance administration. In order to integrate the environment into ongoing development assistance, it is important that the persons involved in this field are in a position to carry out this work. This includes a strengthening of and knowledge about environmental issues at several levels by:

    • Ensuring that environmental concerns are incorporated in overriding strategies for various assistance areas
    • Ensuring that environmental concerns are given sufficient emphasis in decisions on individual projects
    • Ensuring that a sufficient level of environmental expertise and capacity is developed in NORAD
    • Training of personnel (NORAD and Ministry of Foreign Affairs) for the use of environmental guidelines laid down in this strategy
    • Increase the level of expertise in the environmental administration through training, field assignments, etc.
    • Strengthen the contact with and use of the environmental network in Norway
    • Clarify the distribution of responsibilities and functions for the management of the various activities.

    As part of the strengthening of environmental efforts, Norwegian professional institutions shall be more heavily involved in the planning and implementation of projects and programmes. This shall be channelled through central government agencies, institutions and relevant research institutions. Cooperation agreements, where the organisations' know-how and staff are made available, should be concluded. Research institutions, consulting firms and the business sector shall be encouraged to participate in development assistance efforts. NORAD will inform those who may be useful in a development assistance context of the possibilities which exist and encourage participation. In some cases, however, the participants' professional capacity and know-how in the area of development assistance are not satisfactory and must therefore be enhanced through contributions from NORAD.

    A key element in the strategy is to achieve better coordination of and between the development assistance, trade and environmental administrations. The various ministries are responsible for:

    • Ministry of Foreign Affairs: Norway's foreign policy as well as policies and guidelines for Norwegian foreign trade and development assistance
    • Ministry of the Environment and underlying agencies: Norway's environmental policy and Norway's environmental protection agreements with selected countries
    • NORAD: administration of the bilateral component of Norway's development assistance where foreign policy and environmental protection agreements are key elements.

    In order to achieve maximum effectiveness for the use of resources, there must be close cooperation between the Ministry of the Environment, the Ministry of the Environment's professional network and the development assistance administration. The Liaison Committee for the Ministry of Foreign Affairs, the Ministry of the Environment and NORAD is an important forum for discussing issues of a fundamental and overriding nature in environmental assistance and discussing matters where environmental considerations are important. The Committee is headed by The Ministry of Foreign Affairs which is responsible for environmental allocations on the development assistance budget. NORAD is responsible for following up this strategy and developing guidelines, performance targets and indicators for the implementation of environmental assistance.

    5.3 Reporting of results

    The results of efforts to implement the strategy for the environmental orientation of development assistance can only to a limited extent be evaluated on the basis of statistical data on consumption or attempts to aggregate the results from the project level. Considerable emphasis must thus be placed on systematising evaluations of policy through an active use of evaluations and reviews. Qualitative evaluations of the results of the policy should be included in both the budget proposition and in NORAD's annual report. It will also be appropriate to attempt to make the appropriating authorities aware of the measures used and the special initiatives taken to follow up the policy.

    Annex from NORAD:

    Strategic choices and preconditions

    The aim of this annex is to provide guidelines for the practical implementation of the strategy for primary users: the employees in the development assistance administration.

    1. Priorities

    The main objective of environmental assistance is to contribute to a sound management of the global environment and biological diversity. Four environmental areas are given priority:

    • Development of sustainable production systems and natural resource management
    • Conservation and sustainable use of biological diversity
    • Reduced pollution of soil, air and water
    • Preservation of cultural heritage and management of the natural environment's cultural values.

    Assistance for the implementation and follow-up of international agreements shall be given high priority.

    Bilateral development assistance will give priority to the following four strategies to achieve the environmental goals:

    1.1 Integration of environmental concerns into ordinary development assistance

    The principle of integrating environmental concerns into Norwegian-supported development assistance shall be maintained and strengthened. This can be achieved most simply in sectors and programmes in which a combination of positive economic growth and environmental gains is achieved. For Norwegian development assistance, this particularly applies to:

    • Primary industries which are both dependent on
      a sustainable use of natural resources and which can have a strong influence on these same resources
    • Sectors which in an aid context are particularly in demand because Norway possesses special expertise (hydropower, oil/gas, etc.).

    1.2 Establishment of environment-specific development assistance programmes

    Environment-specific measures shall primarily be focused on enhancing the recipient country's capacity and willingness to integrate environmental concerns into its own development efforts and to encourage the countries to finance environmental measures through their own ordinary appropriations («catalyst measures»). New tasks that are referred to in the strategy include:

    • Environmental problems which extend across national boundaries or are of a global nature
    • Mapping of resources and the environment
    • National identity and history (preservation of cultural monuments)
    • Safeguard the environment in fast-growing
      large cities.

    Similarly, support for environmental technology products will be particularly relevant when the support is co-financed by the recipient country itself.

    1.3 Developing environmental competence and capacity

    The development of improved environmental competence which promotes both the integration of environmental concerns and the initiation of environment-specific measures is necessary both for the recipient and donors. This includes:

    • In the education sector, attempts shall be made to integrate an understanding of the environment at all levels. This will lay the foundation for a better understanding of environmental issues in the future
    • Improved environmental insight and access to professional expertise in the recipient countries' administration
    • Strengthening professional capabilities in the field of environmental issues in multilateral organisations and in NORAD as a whole.

    1.4 Precautionary approach shall be applied in all cases

    The importance of a precautionary approach in the management and use of natural resources and in connection with the expansion of infrastructure, etc. is underlined. Preventing overexploitation and pollution is better than attempting to repair the damages after they have occurred.

    2. Preconditions for development assistance policy

    The same preconditions for development assistance policy apply in an environmental context as for development assistance in general. The principle of poverty orientation shall also be applied in an environmental context. The poorest segments of the population are often those that are most severely influenced by negative environmental effects. Women often have a key role as managers of natural resources in many developing countries. In a strategy context, however, it is also important to ensure:

    2.1 National participation in development assistance measures

    Recipient countries themselves shall be responsible for setting priorities and selecting from among alternatives. Norway will give priority to the following:

    • Countries where a large degree of trust has been developed and there is a good dialogue between Norway and the recipient country's sectoral authorities
    • Support to voluntary organisations which shape attitudes in relation to both the authorities and the local population
    • Close coordination with multilateral organisations and other donors which work in the recipient country.

    2.2 Recipient countries' own expertise
    and capacity

    Bilateral development assistance will give
    priority to:

    • Development of effective administrative institutions, including the strengthening of decentralised environmental administration when this is appropriate
    • Measures which create increased cooperation between administrative agencies locally
    • Support for drawing up national guidelines and plans for environmental efforts, including sustainable management of all natural resources
    • Support to research and development which is naturally associated with development goals
    • Measures which foster the understanding of positive environmental solutions and increase the participation of local communities in environmentally oriented development.

    3. Instruments

    Some instruments are particularly important in this work:

    • Institutional cooperation can increase efficiency in the development of local institutions through the dissemination of specific experience between institutions in Norway and in the recipient country. Norway's environmental resource base (government institutions, the business sector, academic institutions, voluntary organisations) should receive support for increasing their expertise in the area of development and development aid. It is also important that Norway's resource base in other development assistance sectors such as energy, infrastructure, education, health, fisheries, agriculture, etc. increase their environmental expertise
    • Combination of various forms of finance can contribute to promoting cooperation between the business sector, government agencies, academic institutions, private local organisations and international multilateral and private organisations
    • Thematic concentration in environment-specific development assistance based on the nature of the environmental problems, the recipient country's priorities and the special expertise and experience of Norwegian participants
    • Initial environmental evaluation of all projects to determine what is required of the recipient in the form of environmental impact assessments, etc. This is developed as part of NORAD's system for evaluating the elements of sustainability in development assistance measures.


    Information

    Information from the Royal Ministry og Foreign Affairs:

    Material from the MFA's Information Section, fax + 47 22 24 27 87

    Internet pages: linkdoc099005-992461#dochttp://odin.dep.no

    E-mail: linkurlmailto:infosek@ud.dep.telemax.no_blankinfosek@ud.dep.telemax.no

    X.400 address: S=infosek;O=ud;P=dep;A=telemax;C=no

    Statements from the MFA to the media:
    Press Spokesman/Head of Information on developement cooperation

    MFA switchboard, tel.: + 47 22 24 36 00,
    fax: + 47 22 24 95 80 or + 47 22 24 95 81

    Office address: 7. juni plassen/Victoria terrasse
    Postal address: P.O. Box 8114 DEP, 0032 OSLO, Norway

    For more information on development aid:

    NORAD
    Tel.: + 47 22 24 20 30 or + 47 22 24 20 60, fax: + 47 22 24 20 31

    Propositions and reports to the Storting and other government publications (available in Norwegian only) may be purchased from Akademika, Department for Government Publications,
    P.O. Box 8134 DEP 0033 OSLO,
    tel.: + 47 22 11 67 70, fax: + 47 22 42 05 51

    Published by the Ministry of Foreign Affairs in August 1997
    Graphic design: Gazette
    Illustration back cover: Tone Andersen
    Print: Gamlebyebyen Grafiske
    Paper: Cyclus Print
    No. of copies: 2500
    E-546 E
    ISBN 82-7177-475-1

    This page was last updated September 1 1997 by the editors
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