Opinion of the Committee of the Regions on the 'Second UN Conference on Housing and Human Settlements - Istanbul 1996; Agenda 21 at regional and local level` (96/C 337/06)

At its 13th Plenary Session of 12 and 13 June (meeting of 12 June 1996) the Committee of the Regions adopted an Opinion on the 'Second UN Conference on Housing and Human Settlements - Istanbul 1996; Agenda 21 at local and regional level`.

THE COMMITTEE OF THE REGIONS,

Whereas the decision of the COR, according to Article 198C(4), of 17 January 1996, to attribute the preparation of this Opinion to Commission 4;

Whereas the Opinion of Commission 4, adopted on 29 March 1996, for which the Rapporteur is Mr Nordström (SV) (CdR 66/96 rev.) has adopted the following Opinion.

1. Introduction

1.1. General

1.1.1. A declaration signed at the 1972 UN World Environment Conference in Stockholm stated categorically that it was the responsibility of governments to protect and improve the environment for the benefit of both present and future generations. The same message was also to be found in the UN report 'Our Common Future` presented by the Brundtland Commission in 1987. The cornerstone of the report was the concept of 'sustainable development`.

This concept was developed further at the 1992 UN conference on development and the environment (UNCED) in Rio de Janeiro. Two of the most important documents to come out of the UNCED conference were the Rio Declaration and Agenda 21. The UNCED documents emphasize that 'sustainable development` implies fair distribution of resources and opportunities, both between peoples now, and between our generation and those to come.

1.1.2. Agenda 21 is an action programme for the 21st century which challenges all players, governments, regional and local bodies, organizations, companies, business, researchers and individual citizens to work towards a 'sustainable development` of society, in terms of sustainable environmental development. The socio-economic structures underpinning the Community must also be organized so as to ensure long-term sustainable development.

Local authorities are mentioned in several parts of Agenda 21, e.g. Chapter 7 on the sustainable development of housing and habitat; Chapter 9 on protection of the atmosphere inter alia by promoting sustainable development in energy supply, transport and industrial development. Chapter 28 is particularly important for local and regional authorities, since it gives them special responsibility for taking the initiative, together with other players, to start work on preparing local Agenda 21 by 1996 at the latest.

The European Union took part in the Rio Conference, and pledged itself to taking responsibility for implementing Agenda 21 within its field of competence.

1.2. The European Union

1.2.1. Subsequently, the question of the environment has become one of the most important issues facing the European Communities. The first regulations on the environment appeared in the late 1960s, and these were followed by the first action programme on the environment in 1973. The Single Act in 1987 incorporated environmental issues in the Treaty of Rome. Under Article 2 of the Treaty, the European Union shall promote sustainable growth which respects the environment. Article 3 states that the environment shall be one of the Union's areas of cooperation and, under Article 130r, the Union shall work towards achieving the objectives of environmental policy, e.g. by incorporating environmental protection into other EU policies. Under Article 130s, the Council shall consult the Economic and Social Committee before taking decisions on environmental policy.

1.2.2. The fifth action programme on the environment - 'Towards Sustainability` - was adopted in 1993, and firmly establishes that the European Union shall work towards long-term sustainable development. Under the action programme, environmental considerations shall be included in all Community policy decisions. The programme also singles out five sectors for special attention: industry, energy, transport, agriculture and tourism. The Decision provides for a review of the fifth action programme on the environment by the end of 1995. In the run-up to this review, the Commission has consulted various parties at European level and in the Member States in order to ascertain their views on the project.

1.2.3. The Council of Ministers has, in connection with the Decision on the fifth action programme on the environment, committed itself to working towards the incorporation of Agenda 21 into the relevant policy areas in the EU and the Member States.

The Commission does not feel that it is appropriate to use legislation to try to implement Agenda 21 at local level. It would rather promote dialogue and encourage local and regional players to set up their own local Agenda 21.

1.2.4. The European Union has promoted sustainable development through programmes, and by initiating and fostering projects:

- A Group of experts on the urban environment was set up as a result of the discussions following the Commission's publication of the Green Paper on the Urban Environment in 1991. The group launched the 'Sustainable Cities` project, under which the policy report 'Dynamic European Cities` is being drawn up. The report, together with an introduction including best practices and a database of practical cases, aims to give practical help towards implementing Agenda 21 at local level.

- The EU Commission, together with a number of other interested parties, has launched the Campaign for Sustainable Cities and Towns, which aims to create a network of towns in this field, and establish links with the European Union on this question. Thanks to a manifesto within the framework of the campaign, some 140 towns have taken part in the campaign and committed themselves, among other things, to introducing Agenda 21.

- The Commission is also supporting other initiatives and networks such as Urban Local Initiative Centres (ULIC), twin-town cooperation with local and regional authorities in Central and Eastern Europe (within the framework of ECOS and Ouverture) and the Network for towns in the Mediterranean area MED-URB, etc.)

1.2.5. The White Paper on Growth, Competitiveness and Employment outlined a new development model for the Community. Keynotes of the proposal are greater emphasis on clean technology and proposals to replace part of taxation on employment in the EU by taxation on energy and natural resources.

1.2.6. The Commission, via its financial instrument for the environment (LIFE), is providing economic support for projects which foster the objectives of the fifth environment programme. Other Community initiatives and programmes are also of interest for achieving sustainable development, e.g. the Save programme for more efficient use of energy.

In 1993 the Council passed a Regulation to allow those sectors of industry which wished to do so to take part in an environment management and audit system (EMAS) which started in April 1995. Other key initiatives of interest for the environment from a local point of view are the Directive on environmental impact assessment and the European eco-labelling system initiative.

At international level, the EU has been a driving force behind environmental issues in central and eastern Europe in particular.

1.2.7. Economic development in the various regions has a considerable effect on the environment. In its work on the vision for regional development, Europe 2000+, the Commission emphasized the need for regional development to take place within the framework for the environment, and for development to go hand-in-hand with the principle of sustainable development.

1.2.8. In 1992 the Commission put forward a proposal for a tax on carbon dioxide emissions as a means of coping with emissions which threaten the climate. In May 1995, the Commission presented a revised proposal which suggested that the introduction of taxation should be optional for a transitional period.

1.3. Habitat II

1.3.1. The second UN world conference on housing and human settlements (Habitat II) is to be held in Istanbul on 3 to 14 June 1996. Two main themes will be discussed at the Conference:

- decent accommodation for all, which also means that the UN global strategy on housing (Global Strategy for Shelter by the Year 2000) will be followed up at the conference;

- sustainable development of human settlements in an increasingly urbanized world: here the outcome of the UN conference on development and the environment, held in Rio de Janeiro in 1992, will be followed up in areas touching on housing and human settlements in the broad sense.

Just as with the issues discussed at the Rio Conference, urbanization issues and matters relating to the development of sustainable human settlements are, to a large extent, questions which affect the regional and local level. This is why the Conference has also ben nicknamed 'The Municipality Summit`.

In order to acknowledge the significance of the Local Authorities, the General Assembly of the United Nations in November 1995 decided to follow the proposal from Prep. Com. 2 for Habitat 2, that representatives of local and regional authorities should be able to participate in the conference in their own right, as representatives for the people at local level.

At Prep. Com. 3 to Habitat 2, that took place 5-16 February in New York, the draft Global Plan of Action for Habitat 2, 'The Habitat Agenda` was discussed. The parts of the document of which agreement could be reached confirms that the management of human settlements is a task for all stakeholders at the local level, and that the local and regional authorities plays the leading role in this process.

At Prep. Com. 3, many States had representatives from local and regional authorities in their national delegations. Fifty per cent of the EU Member States had representatives for the local and regional authorities in their delegations. During the Prep. Com. the G4 + Local Authority Habitat II Steering Committee arranged a separate meeting of International Organizations of Local Authorities to discuss the participation of local authorities in Habitat 2, the role of local authorities in implementation and follow up of the conference, and the long term co-operation between the local authorities and the UN system. The Committee of the Regions was, together with the Standing Conference of Local and Regional Authorities within the Council of Europe, mentioned as good examples of local and regional participation in the formal decisionmaking at international level.

2. General comments

2.1. Agenda 21

2.1.1. If Agenda 21's objective of sustainable development is to be achieved, it will not be enough to improve the environment by acting on production plant or other sources of emissions. People will have to change their attitude, habits and way of life. Every member of the community will have to make his own contribution towards achieving the goal. This is why the process must be anchored in the everyday, local environment and progress from grassroots level upwards.

This strategy would give local and regional authorities an especially important role as catalysts and coordinators, in cooperation with authorities, non-governmental organizations, local business and other groups and individuals. Since work at local level involves so many people, work on Agenda 21 at local and regional level also constitutes a major means of strengthening and vitalizing democracy.

2.1.2. The Committee of the Regions therefore endorses the Commission's opinion that regulation is not a suitable means of achieving the aim of involving all local and regional authorities in framing local Agenda 21. If, as has hereto been the case, the EU concentrates on campaigns and programmes, local and regional political bodies will be able to tailor their efforts to particular local conditions.

The Committee of the Regions notes that a large number of European local and regional authorities have taken up the Agenda 21 challenge and begun work on setting up a local Agenda 21. The Committee of the Regions believes that local and regional authorities which are allowed to base their Agenda 21 activities on their own particular situation, with support and advice from government and central organizations, are more successful in their endeavours.

Over 500 local and regional authorities in the Member States have started work on framing a local Agenda 21. Local work arrangements are wideranging. Regional and local authorities have not only decided on working methods for Agenda 21: they have also allocated funding and staff. The public, non-governmental organizations and business have come together in local Round Tables and partnerships. Seminars and training courses have been organized. A number of different areas have been dealt with according to local circumstances, e.g. physical planning, transport, energy, waste management, environmental control and economic development. In many Member States, guidelines have been drawn up to provide support for local and regional initiatives.

Some 140 towns have so far signed the Aalborg Declaration, thus committing themselves to the European campaign for sustainable cities and to framing local Agenda 21. Other local and regional organizations and networks have incorporated Agenda 21 activities into their remit. Examples are the CEMR (Council for European Municipalities and Regions); Eurocities; UTO (United Towns Organization); WHO's Healthy Cities Project and ICLEI (International Council for Local Environmental Initiatives).

2.2. The European Union

2.2.1. There is every reason to believe that the EU activities carried out in connection with the presentation of the fifth action programme on the environment - via the group of experts on sustainable cities and support for the campaign for sustainable cities - have been a success. Network activities show that the EU line on programme procedures and its support for the various networks constitute an effective working method. By supporting decentralized activities, the EU has acted as a source of inspiration and catalyst. In the networks set up by European towns and regions, small endeavours can have farreaching effects, since they can be reproduced by a large number of players at local level.

2.2.2. Under the terms of the Treaty, the European Union shall work to protect and improve the environment, and incorporate protection of the environment in other EU policies. The principles of sustainable development laid down in Agenda 21 have not yet surfaced in the fifth action programme on the environment. Within the chosen sectors of industry, transport, energy, agriculture and tourism in particular, the principles of sustainable development have still not gained sufficient ground.

The main aim of EU policy for manufacturing industry is to boost competitiveness. The idea that sectors which makes greater use of clean technology will be trump cards for the future of European industry - an idea also put forward in the White Paper on Growth, Competitiveness and Employment - has still not become a practical reality. At the same time, the Committee of the Regions is pleased to note the increasing interest for environmental monitoring and audit systems both in industry and public administrations.

2.2.3. If we are to point European development in the direction indicated in the White Paper on Growth, Competitiveness and Employment, then the legal system and economic policy must allow local business and local and regional authorities to reshape their activities to prioritize cleaner technologies, more jobs and less waste of natural resources. To this end, the EU, within its area of competence, should be more specific in linking conditions for regional development, agricultural and other aid to requirements based an sustainable development and the aims of Agenda 21.

3. Proposals

3.1. Agenda 21

3.1.1. Work on setting up Agenda 21 at local and regional level has been most successful in Member States with strong local government, and where local authorities have considerable freedom to adapt the work to local circumstances and needs. One important precondition for a successful outcome at local and regional level is that there should be an independent political body, able to transpose agreements into binding decisions.

The European Union should act in such a way that the work of the local authorities is not made more difficult, by supporting local and regional initiatives to promote sustainable development. In this respect, boosting the power of local and regional authorities is not only of major importance for successful environmental action; it is also a key instrument for strengthening local and regional democracy.

3.2. The European Union

3.2.1. When the Treaty is revised in 1996, the decision-making process for environmental questions affecting municipalities and regions will have to be amended so as to require the Council to consult the Committee of the Regions before taking any decision.

3.2.2. The European Commission should use its financial instruments (e.g. the environmental fund, LIFE) to support local and regional projects which aim to promote the exchange of experiences and achieve sustainable development within the framework of a local Agenda 21. The Committee of the Regions feels that the LIFE regulations should be clarified, in order to specify that local and regional projects which concentrate on sustainable development and Agenda 21 can receive Community support.

Funding for Agenda 21 activities at local and regional level can be provided for Agenda 21 networks (e.g. of municipalities, private business, associations and individuals), and should especially encourage cooperation beyond traditional borders and sectors, in order to emphasize the importance of the fact that Agenda 21 not only deals with environmental questions, but also aims to integrate the environment, the economy, culture and social welfare.

3.2.3. The responsibilities which Agenda 21 involves for Member States, regions and municipalities must be incorporated in full when revising the fifth action programme on the environment. It is especially important that the policies for the five sectors mentioned in the fifth action programme on the environment should be more consistent with the aims of sustainable development. In order to assess the effects of the proposals, the Committee of the Regions would ask to be consulted by the Commission on questions which might affect the environment at local and regional level.

The Committee of the Regions also calls for the concept 'sustainable development` to be incorporated in all policy areas affecting towns, regions and municipalities.

3.2.4. The Committee of the Regions feels that greater priority must be given to sustainable solutions and sound environmental practices when granting EU funds and launching initiatives. Structural Fund projects must be subject to strict requirements regarding reduced environmental impact, and contribution to sustainable development. Such requirements for projects seeking funding make it easier for local and regional authorities to work for sustainable development within their area of competence, whilst neutralizing the relative competitive edge of projects which fail to comply with environmental requirements.

The Committee of the Regions feels that the challenges which Agenda 21 poses for local and regional authorities can provide an incentive for increased support in this area. This support should be directed towards networks and twin-town cooperation activities both within the Union, and with local and regional authorities in neighbouring countries.

3.2.5. Environmental questions must also be given top priority in decisions on other EU policy areas, particularly the areas specified in the fifth action programme on the environment. The use of chemical fertilizers and pesticides in agriculture can serve as an example of measures requiring a more detailed description of environmental impact.

In the energy sector, the main aim is not to meet energy demands at low cost, with as little environmental damage as possible. In order to achieve greater consistency with the aims of sustainable development and Agenda 21, greater priority should be given to reducing energy consumption and conversion to increased use of renewable energy sources. Economic management systems centred on the environmental impact of industry must be developed further. One such example is the Environment Monitoring and Audit System (EMAS). The Commission can also help to pave the way for local and regional authorities to run information campaigns, and raise consumer awareness of the environment by setting environmental standards and implementing the Eco-label system.

Much remains to be done in the transport sector, too. The disadvantages of the huge increase in volume - traffic jams, noise, pollution and accidents - particularly affect the local environment. EU policy should put greater emphasis on finding effective ways of reducing the need for transport, and alleviating the damage transport causes to the environment.

3.2.6. The Committee of the Regions also believes that other forms of economic management instruments must be developed within the Union. The principles, laid down in the White Paper on Growth, Competitiveness and Employment, promoting cleaner technologies and less exploitation of natural resources by taking natural resources rather than labour, could make it easier for municipalities and regions to achieve sustainable ecological, economic and social development. One instrument which is being mooted as having a role to play in this area is the introduction of a CO2 tax throughout the Union.

3.2.7. In addition to activities in chosen sectors, the Committee of the Regions believes that the EU, within the framework of sustainable development initiatives and Agenda 21, should also consider providing support for specific social groups. The Committee feels this would be particularly appropriate for the younger generation, i.e. in the context of education and youth organizations. This generation's commitment and contribution to the environment - which often go hand in hand with issues of democracy and peace - deserve full backing from the Union.

3.2.8. The Commission could also back local and regional Agenda 21 activities by emphasizing the significance of Agenda 21 in various international fora and in its dealings with national governments. The Committee of the Regions therefore lends its full support to national, regional and local initiatives undertaken to achieve sustainable development in Member State towns, regions and municipalities. The Committee of the Regions believes that the Commission should encourage further activities by promoting the dissemination of good practices as part of the campaign for sustainable cities, via the group of experts on sustainable cities, and in other contexts. In order to emphasize further the importance of local activities, the Commission should cooperate with other organizations on a project to highlight particularly successful examples of sustainable development and Agenda 21 initiatives.

3.3. The Habitat II Conference

3.3.1. Habitat II, the UN conference on housing and human settlements to be held in Istanbul in 1996, will not only deal with towns in the developing countries; European cities' efforts to achieve sustainable development must also be discussed. The issues which will be debated at the conference do not just concern governments but are of vital importance for the development of municipalities and regions.

The preparatory work for Habitat II has highlighted the importance of matters concerning human settlements for local and regional authorities. The Committee of the Regions should therefore be allowed to influence EU preparatory work for the conference. Here the comments made in this report should serve as guide.

3.3.2. The issues which will be raised at the Habitat II conference are of prime importance for the municipalities and regions of Europe, and are clearly connected with Agenda 21 activities at local and regional level. The Committee of the Regions therefore calls on its members to press for their respective Member States' national delegations to the conference to include representatives from the municipalities and the regions, in accordance with the declarations contained in Prep. Commission 1's final document to the Habitat II Conference.

The Committee of the Regions also hopes to be represented at the Habitat II conference, in order to put forward the viewpoint of European municipalities and regions concerning the implications for European towns of the conference's declared aim of achieving decent accommodation for all and a sustainable city environment.

For its part, the Committee of the regions is prepared to endorse the commitments which may be made at the conference; but, at the same time, it must insist that governments provide the municipalities and regions with realistic means of carrying out their tasks.

3.3.3. 'The Habitat Agenda`, the document for the Habitat 2 conference, was not finally negotiated during the Prep. Com. 3. Among the parts that are still open are:

- all paragraphs referring to 'housing rights`;

- part D. of the Global plan of Action, 'Capacity building and institutional development`;

- all paragraphs dealing with implementation, follow-up and monitoring of the Habitat Agenda.

'Capacity building and institutional development` is of great importance to the local and regional authorities, since this part defines the role of the different stakeholders in the process, among them the local authorities. The need to strengthen the local authorities and to decentralize decision-making to them is included in the draft version of this part. The role of local and regional authorities in the implementation and follow-up of the Habitat Agenda is also important.

Also in the texts approved by Prep. Com. 3 the importance of local authorities is stressed in many ways. Many paragraphs in the Habitat Agenda underline the importance of local authorities in the work for sustainable human settlements.

Before and under Prep. Com. 3 the Member States of the European Union co-ordinated their input for amendment in the Habitat Agenda. Through this, the views of Europe have had a significant effect on the outcome of the conference.

When reading the Habitat Agenda the reader should be aware that the term 'region` is used in a different meaning in UN documents than in the European Union. In the global perspective 'region` means a group of neighbouring countries, while what we call a region in UN documents is referred to as the 'sub-national level`.

4. Conclusions

4.1. Environmental issues play an increasingly important role within the European Union, and the same is true of issues related to sustainable development. The municipalities and regions are responsible for development within their area of competence, and carry out a great deal of environmental planning. It is therefore important that the Committee of the Regions should discuss these issues, and that it should be consulted when decisions are to be taken which affect the environment at local and regional level.

4.2. The Committee of the Regions believes that the Commission should continue to support programmes and campaigns, rather than seek to legislate on sustainable development and Agenda 21. The Commission should also be seen to be taking seriously issues relating to the development of towns and built-up areas which are viable on a longterm basis along with renewed efforts for the urban environment. Support for sound local and regional projects should inter alia, be increased within the framework of existing financial instruments.

4.3. The Committee of the Regions lends its full support to the various local, regional and national initiatives which the Member States have undertaken with a view to implementing local and regional Agenda 21. It is important that the Commission should continue to disseminate good examples, and support the various initiatives and networks. It is the task of the municipalities and regions to start discussions with a view to implementing the requisite procedures at local and regional level.

4.4. Given that responsibility for housing and habitat lies with the European municipalities and regions, the Committee of the Regions believes that it should be able to influence EU preparatory work for the 1996 Habitat II conference in Istanbul. Local and regional representatives should also be included on the Member State delegations to the conference.

Bearing in mind that less than half of the Member States of the EU included representatives from the local or regional level in their national delegations to Prep. Com. 3 it is important that the delegates of the Committee of the Regions to their national Government announce their interest that representatives from the local and regional level can participate in their national delegations to the Habitat 2 conference in Istanbul.

4.5. At the Istanbul conference one of the main discussions will be the implementation and follow-up of the Habitat Agenda. Regardless of the final decision, it is important that the regional and local authorities take an active part in the follow-up process. The main tasks for the local and regional levels are questions on methods for human settlement management, reporting of progress in the implementation of the Habitat Agenda and the sharing of best practices.

Done at Brussels, 12 June 1996.

The Chairman of the Committee of the Regions

Pasqual MARAGALL i MIRA