|
7.7 The individual
conclusions are described in more detail below.
NCS
MTR CONCLUSION 1
Achievements under the NCS have been primarily awareness raising and institution
building rather than actual improvements to environment and natural resources.
NCS
Success as a Catalyst for Environmental Sustainability Dialogue and Initial
Action
7.8
The NCS contributed enormously to the early 1990s climate of support in
Pakistan for environmental issues and community management of resources—although
so also did big events such as the Earth Summit and subsequent donor intervention
and agendas. In some other parts of the world, by the mid-90s the climate
of government financial support for environmental action seriously declined,
although not necessarily also at a popular level. These trends were evident
also in Pakistan, although perhaps somewhat later. Elsewhere now, however,
support for both environment and SD is again on the rise, spurred in part
by new concerns related to trade, issues such as climate change and desertification,
and growing evidence of the costs of inaction.
7.9
In Pakistan there have been notable achievements in institutional development,
including the development of the 1997 Act and innovative measures such
as the environmental tribunals, and the Sarhad Provincial Conservation
Strategy with its associated district conservation strategies and round
tables. While the overall system has been slow in coming together, there
is certainly enough institutional development to take concrete action
towards improved environmental protection and to implement some elements
of sustainable resource management. There is, however, concern expressed
by some that the gradual weakening of many governmental institutions threaten
those that have remained strong, within and outside government—a few “islands
of excellence” cannot remain sustainable.
Progress
on Improvements to Environment and Resource Management Insufficient
7.10
The NCS and its 1993 Implementation Plan were spuriously comprehensive,
suffering both from a lack of prioritization and from not proposing an
ongoing mechanism for dialogue to thrash out priorities. The ‘big book
of plans’ is still referred to, but not with any firm degree of trust
or accountability. Unfortunately very few of the action goals for natural
resource or environmental improvement, as set out in the NCS for achievement
by 2001, have any hope of being met by then.
7.11
The enormous investment target of the NCS has not been met, making many
of those involved feel like their efforts have been a failure (even though
that may not be correct and, in any case, some targets in today’s context
might also require revision). Yet there are very interesting and important
pilot projects that provide insight for future efforts. Examples were
provided in Chapter 3 of this report, and others could be cited. Thus,
it is not that interesting activities cannot be designed and carried out.
It is that, overall, the NCS is a top-heavy approach that placed a heavy
burden on a weak governmental system that has responded by under-performing
throughout.
7.12
Many projects have come—overtly or otherwise—from the NCS (350 government-implemented
projects have provisionally been counted at the federal level alone).
Few have been adequately assessed in relation to their contribution to
outcomes and impact of the 68 NCS program areas. It is fair to say that,
while some improvements exist, they remain modest and fragmented.
NCS
MTR CONCLUSION 2
The
NCS is not operating adequately as a
national
sustainable development strategy.
The
NCS does not Make Sustainable Development an Overarching Objective
7.13
Pakistan needs a national sustainable development strategy since the most
significant improvements to the environment over the longer-term are likely
to come about through a combination of poverty reduction and economic
improvements. Shifting the arguments in the other direction, it is the
poor who are most likely to be affected by declines in environmental conditions,
natural resource scarcity and hazards. There is evidence that the Genuine
Domestic Savings of Pakistan is being seriously reduced by a combination
of natural resource depletion and pollution. The NCS, while making sustainable
development one of three main objectives, has not followed through with
a workable plan of action, or performed as a convincing strategy since
it does not adequately address the linkages of environment, economy and
poverty reduction. Nor does it really tackle the actions needed to integrate
sustainability into environmental conservation and social and economic
development—the main criterion of a strategy for sustainability.fn
28 The opportunity certainly exists to address this problem,
and it is particularly timely to do so since countries around the world
are reviewing ways to increase their national commitments to sustainable
development in preparation for the next round of global discussions—to
take place in 2002, a decade after the Rio Earth Summit.
7.14
It is clear that much confusion exists about definitions of sustainable
development and how the theme should be represented in the NCS, and more
generally, as a guideline for development directions and governance in
Pakistan. There are three important points to bear in mind. First is that
the internationally accepted SD definition
developed
by the World Commission on Environment and Development in 1987 is still
valid.fn 29” Second is that,
as noted in Chapter 3, Box 3 of this report, for Pakistan it is vital
to recognize that poverty reduction, economic growth and environmental
sustainability should drive action for sustainable development. Attention
to these imperatives will help to widen the ‘ownership’ of the NCS considerably.
The key is to identify the relationships among these major goals while
developing ‘triple win’ activities to relaunch the NCS. And third, that
sustainable development action depends upon two vital elements: broad
public participation in design and implementation of initiatives, and
a high degree of innovation since ‘business-as-usual’ is not likely to
generate successful solutions for improving sustainability.
NCS
Influence on Linkages to Economic and Social Issues is Limited
7.15
While the NCS participatory processes influenced (positively) the way
in which the Social Action Plan (SAP) was developed, these initiatives
have not really come together (to look for poverty-environment win-wins,
for example). Family planning program initiatives have not been influenced
by the NCS, and there is limited transfer to the NCS of field experience
gained over several decades by NGOs and government. Thus key ties that
might be forged to poverty reduction strategies have not been made.
7.16
There has been very little ‘mainstreaming’ of the NCS in terms of changing
the ways that key macroeconomic and social decisions are being made. The
NCS was not being implemented as envisaged across the bureaucratic structure
and processes in place during most of the 1990s. The high-momentum, participatory
processes used in NCS preparation crashed headlong into bureaucratic silos
driven by imperatives other than sustainability. The NCS correctly implied
major changes in governance. The challenge of implementing it continues
to be almost overwhelming in a country where the bureaucracy dominates,
and yet is subject to many obstacles and weaknesses. The failure of government
is widely acknowledged. But the new approach focusing on devolution offers
fresh opportunity consistent with approaches such as those of the district
level conservation strategies and for initiatives such as the Mountain
Area Conservation Project.
Some
Key Elements for SD are Missing or are not Expressed as Targets
7.17
The NCS is still the ‘touchstone’, albeit dated, for environmental projects
in development planning, but several important new areas are missing from
the 14 program areas. These areas are largely those that have become significant
internationally in the past five years. They include: climate change,
sustainable livelihoods, environmental security, trade and sustainable
development (including certification processes), biotechnology, and the
role of banking, insurance and investment. A major concern is how some
of these new themes can be incorporated into the NCS without further overburdening
it.
Lack
of Major Policy Shifts
7.18
The NCS did not result in an overall policy shift towards sustainable
development, with the exception of some environmental and resource management
policies. Indeed the NCS has become gradually more invisible to many bureaucrats.
There is a feeling that redefining the NCS in terms of policy, principles,
standards, and performance—then developing a system of participation that
invites and requires institutions and departments to develop their own
responses, might be more effective than a centralized approach that is
very difficult to coordinate. Various models exist in the world of how
this may be done. Canada, has a Commissioner on Environment and Sustainable
Development within the Office of the Auditor General reporting to Parliament
on the performance of all government departments, based on their self-assessment
of performance in implementing the SD policies each department has designed.
NCS
MTR CONCLUSION 3
The
presence of the NCS has strengthened civil society
institutions
and their influence.
Civil
Society Institutions are the Strongest and Most Consistent Contributors
to the NCS
7.19
The NCS has been a tremendous stimulus for the development of IUCN-Pakistan,
SDPI, a host of environmental organizations and associations operating
nationally or at more local levels, and for the expansion of some membership-driven
organizations such as WWF-Pakistan. Some of the growth would likely have
happened in the absence of the NCS, but it is hard to escape the conclusion
that civil society has been proactive in seeking opportunities via the
NCS. Furthermore, in contrast to government, these organizations have
learned, have developed a capacity to be responsiveness to needs, and
have increased their management abilities. Indeed several organizations
now have a greater capacity to deliver than counterpart government units.
Their value to the future of the NCS and to the people of Pakistan is
exceedingly high. The challenge is to continue their growth and development
while linking their success to capacity-building at all levels for government,
and to make them more effective partners in work with communities and
the private sector.
7.20
The key NGOs have become influential in maintaining the profile of the
NCS, environment, and to some extent, sustainable development. They also
have developed strengths in bringing forward these issues for media attention,
and, on occasion, for opening important debates affecting policy on selected
issues. This influence is, however, still quite limited, especially in
relation to the big economic and social concerns affecting Pakistan. The
opening of “new space” for discussion is a major step forward,
but new skills and allegiances will be required for these civil society
voices to have a broader impact in the years ahead.
Private
Sector Bodies have Great Potential but are Less Advanced
7.21
The private sector is still lagging behind the leading civil society organizations
in terms of its interest and commitment to the NCS and in terms of its
own learning capacity. There are some very positive signals, including
the useful dynamic established through the FPCCI, various pilot projects
and business investments for pollution control. It is certainly possible
that over the coming years much more can be expected in terms of progress
by the private sector. Much of this is because of business openness (indeed
vulnerability) to global pressures for greener production processes and
improved corporate social responsibility.
Civil
Society Organizations can Expect to be Involved in the NCS for the Long-Haul
7.22
Some NGOs question their role in the NCS, worrying that they may be taking
over responsibilities more properly belonging to government. This is particularly
the case where they are taking on a more active role in project, or even
program implementation. It would be disastrous for the NCS if, for example,
IUCN-Pakistan were to pull away from its central support role. Similarly,
the very useful role being played by SDPI in bringing forward policy issues
could not be easily replaced. What has developed is a set of interacting
institutions that are now highly dependent upon each other, although not
taking full advantage of possible synergies. It is important that government
should not be perceived to be simply handing over its responsibilities.
On the other hand, it is a reality that government alone cannot adequately
implement the NCS or most sustainable development initiatives. Hence the
need for continuing growth of both civil society and private sector capacity—and
using this capacity to help strengthen government’s own capabilities.
It is entirely reasonable to build this somewhat complex system of partnership,
with each element drawing upon its own strengths and comparative advantage.
NCS
MTR CONCLUSION 4
NCS
implementation capacity requires much improvement.
Accountability
is Lacking
7.23
A strategy owned by everyone must incorporate accountability by all the
key partners. This has not happened with the NCS so that not only is it
difficult to define who is responsible for goals not being achieved, but,
in some cases, even to find people in sectors that should have responsibility
who are aware that the goals exist.
An
Unworkable Design
7.24
The complex design of the NCS, and of the existing provincial strategies,
has worked against its implementation, but continues to be replicated
at each new round of strategic planning. The design has to be simplified,
while retaining the capacity to present an integrated approach focusing
on key environment, economy and poverty reduction/quality of life concerns.
Coordination
and Institutional Development
7.25
There is no continuing senior forum for the NCS. The donors, having backed
a process in NCS preparation, are now distinctly backing projects only
(with the exception of Canada through the PEP initiative, UNDP, World
Bank and NORAD). There is little NCS process management within government,
and the NCS Unit is a marginalized unit. There has been little overall
monitoring, even of NCS “project” inputs, let alone outputs
or impacts. The planned information system has not been established, and
the NCS Unit has no mandate for implementation. All of these problems
have to be addressed, and in a fashion that raises the profile of the
NCS nationally and with both existing and potential stakeholders.
7.26
When it comes to strictly environmental matters, several ‘central’ institutions
were put in place quite rapidly, including the Planning Commission Environment
Section, NCS Unit, EPAs federal and provincial, two Environmental Tribunals,
and SDPI. Some institutions are far-from-perfect miniatures of what is
needed in terms of well-trained personnel and effectiveness. As already
noted, the institutional road map has included a significant increase
in the number and effectiveness of professional, private sector and civil
society organizations, nationally, provincially and locally. These have
helped to provide leadership and support to NCS implementation. As partnerships,
however, they need improvement—amongst themselves, and with government.
7.27
Improved environmental legislation, especially the 1997 PEPA, holds considerable
promise, but it stresses punitive approaches and is so far only partially
implemented. The NCS was heavy on promoting new regulations, but did not
cover voluntary approaches, market instruments, and enabling legislation
as much—topics that have evolved considerably in the international scene
since the NCS was designed. Small numbers of progressive private sector
firms are moving forward on environment and SD and expressing the need
for action on improved incentives, while the majority still escape action
and are still scot-free of the punitive measures introduced within legislation.
Only
One Provincial Strategy is Truly Functional at Present
7.28
Institutional development in the form of local strategies has proceeded
in some jurisdictions, especially through the Sarhad (1996), Balochistan
(2000), and Northern Areas (formulation stage) strategies, and two district
strategies in NWFP. This matches the original intention of the NCS, although
it is notable how little some of the federal government NCS players have
been involved in the provinces. The situation in Sindh, Punjab, and perhaps
AJK is much less promising. For the first two in particular, there have
been strong institutional barriers to the development of a provincial
conservation strategy. Thus the goal of having a second-tier of conservation
strategies throughout Pakistan may be very difficult to achieve, and should
only be pursued if it can lead to meaningful and implementable strategies.
7.29
These more local strategies are proceeding on a consensus-building and
information sharing basis, structured around on-going round tables, cross-sectoral
partnerships, SD focal points within government, etc., rather than a static
‘document’ approach. In the process they have become less connected to
the NCS. But there is an important learning opportunity for bringing the
existing provincial experience to the national level.
NCS
MTR CONCLUSION 5
The
catalytic power of the NCS continues but needs reinvigorating
and refocusing by developing NCS-2.
Public
Awareness of the NCS and Environment Issues is Still Limited
7.30
Awareness of environment and development concerns, if measured by media
stories, appears to have peaked in 1997 within Pakistan. There is little
indication that the NCS reaches audiences at the community level in most
parts of the country. Consequently there appears to be limited understanding
on the part of people concerning the link between environment and the
potential for improving the quality of their life. Thus NCS potential
to play a catalytic role needs to be rekindled in some very fundamental
ways. This should be possible, and if done well, will build a level of
support for further action within government. The current focus on devolution
provides the ideal opportunity to spread important messages associated
with the NCS throughout Pakistan, and, in turn to learn much more about
local needs. As discussed at length elsewhere in the report and in the
recommendations, this can help to transform the NCS into a demand-driven
agent for change.
Within
Government NCS Influence has been Declining—Nationally, and in Certain
Provinces and Sectors
7.31
Major political commitment was built up at the time of agreeing to the
NCS goals and plans, and some shadow of this commitment remains. But it
is weak on the all-important area of institutional change, needed to implement
the strategy. And as the impetus for this change slackens, overall attention
to the NCS in budgets and in decision-making has slipped. Yet there is
a recognition of the need for an umbrella mechanism. Indeed, if there
were not an NCS, there almost certainly would be a need to re-invent it.
The various sectoral and other plans and strategies evolved over the last
decade are valuable in their own right, but do not add up to a whole.
The NCS was to provide that whole.
“Brand
Name” Recognition of the NCS is Helpful
7.32
There are various, and in the minds of some, competing approaches to what
should become this “whole” in the future. It will be important
to clarify linkages among several initiatives. These include the Biodiversity
Action Plan, the possibility of an Environmental Strategy, various initiatives
that may bear the label of sustainable development—all in addition to
the NCS. It would not be wise either to ignore these or, most importantly,
to assume that they can in any sense replace the role of the NCS as a
nationally significant umbrella strategy for addressing environment and
development. We suggest a revised NCS-2 with a clearer focus on sustainable
development. The value of staying with the name is that it is a well-established
“brand”, even if not universally recognized. Furthermore, it
has substantial set of accomplishments around which many more could be
added.
Recommendations
7.33
The number of main recommendations (Box 14) has been kept small deliberately,
and they are written simply. We want them to be reviewed and debated within
many different circles. All six recommendations should be considered together,
for they have been crafted with an integrated approach in mind. Detailed
suggestions are provided in the context of each main recommendation. These
more detailed recommendations are derived from the wealth of information
brought together in the course of the MTR and should provide useful directions
for the remaining period of the existing NCS as well as guidance for the
NCS-2 redesign we propose.
|
Box
14. Six Main Recommendations of the NCS Mid-term Review.
1. Ensure that
the NCS is fully owned by government, the key partners and stakeholders,
and by building on the concerns and needs of the people of Pakistan.
2. Switch the
NCS from top-down and supply-driven to a bottom-up demand-driven
approach.
.3. Prepare
NCS-2 to serve as Pakistan’s sustainable development strategy
for 2002-2012 with a greater emphasis on poverty reduction and
economic development in addition to environmental sustainability.
4. Make government
institutions work towards an ‘enabling framework’ for
sustainable development.
5. Expand the
range and scale of financial mechanisms for meeting
NCS objectives.
6. For donors,
demonstrate commitment to a renewed NCS
through consistent and coordinated support.
|
7.34
Change is needed immediately in order to get maximum benefit out of existing
investment in the NCS, to raise its profile, and to lay the groundwork
for NCS-2. We therefore have highlighted several recommendations for immediate
action. In addition, there are recommendations that should be acted upon
within a year. We have avoided the phrases “short-term” and
“long-term”. For much of the action that can be taken immediately
will have long-term benefits. And we have avoided the temptation to make
recommendations that will await implementation for more than a year. It
is an important and demanding time to be contributing to Pakistan’s restructuring.
While the subject matter of sustainable development always looks to the
longer-term, it must be able to demonstrate positive benefits almost immediately,
if initiatives are to have credibility, given Pakistan’s current situation.
7.35
While advice to government, and especially to the federal government,
may appear to dominate within the recommendations, it is well to keep
in mind the first key recommendation—that the NCS needs to be fully owned
by people and organizations spread throughout Pakistan and in civil society
and business as well as within bureaucracies. Government’s role is emphasized
because it has been perceived to be a slow learner and weak performer
in many ways, sometimes hindering rather than helping NCS implementation.
We assume that NGOs and business will continue to grow in strength, but
no national strategy can thrive without the facilitation and leadership
of those in power. Thus, the message to civil society partners engaged
in the NCS implementation process is that they should not plan for an
early exit—their skills and inputs indeed must be enhanced and made more
accessible through partnerships. Government agencies on the other hand
must become more accustomed to needs and priorities being set in collaboration
with stakeholders. Nowhere is this more true than with the NCS.
NCS
MTR RECOMMENDATION 1
Ensure
that the NCS is fully owned by government, the key partners and stakeholders,
and by building on the concerns and needs of them people of Pakistan.
7.36
Since the NCS potentially touches on the lives of all citizens and many
areas of governance, it should be influencing government and societal
action from bottom to top—community and district to the provinces and
federal government, by civil society and by the private sector. It should
operate not as a parallel plan, but as a guide for government policies
and programs. Government, accordingly, should streamline its policies,
plans and financial allocations to align with the NCS—much more effectively
than in the past. It will require a robust, central coordinating body
capable of guiding this transition nationally and helping to facilitate
stakeholder participation and ownership.
1.1
Revitalize and recommit to the NCS at the highest levels of the federal
government with a focused, strategic approach leading to demonstrable
institutional strengthening and environmental improvements in the coming
year.
IMMEDIATE
- Chief Executive
makes public commitment to NCS and its renewal as Pakistan’s sustainable
development strategy; Cabinet discussion and commitment to action on
a select list of priorities with assigned accountabilities and leadership
by specified ministers and government units.
- Suggested priorities
for action results over 12 months include:
- PEPC composition
and mandate reviewed, with follow-up action and performance criteria
established.
- Completion of implementing
regulations for 1997 Act.
- Establish procedures
for the operation of the Environmental Tribunals.
- Finalize regulations
on industry self-monitoring and their link to the national reference
laboratory.
- Release the first
State of Environment Report for Pakistan.
- Complete several
pollution reduction projects now underway, e.g. Kasur Tanneries, as
concrete examples of action.
- Set and meet achievable
targets for five or more sectoral initiatives within the context of
the current NCS.
1.2
Ensure that planning for devolution and for NCS district-level initiatives
proceed together, recognizing the need to make sustainable development
central to local level governance.
IMMEDIATE
- MELGRD Ministerial
Advisory Committees on Environment and on Local Government jointly develop
a “white paper” linking the NCS and devolution.
1.3
Key NCS stakeholders should take stock of what they have individually
and collectively accomplished under NCS and engage in a joint process
to redefine and strengthen strategies.
IMMEDIATE
- PEP partners and
individual NCS stakeholder groups consider how the findings of the NCS
Mid-term Review apply in relation to their individual efforts to implement
NCS components, and how they might overcome barriers to progress.
- The PEP partners
establish a national “forum” to examine how the NCS should
be “owned, housed and implemented” in the future, and whether
the partnership needs to be expanded, for example through the addition
of one or more provinces and business organizations. The forum should
provide an opportunity for the stakeholder groups to learn from each
other’s experiences and aspirations.
1.4
Revitalize and expand strategies for individual and community-level
awareness-building
about NCS objectives.
WITHIN
18 MONTHS
-
Explore greater
use of approaches that have proven successful, especially use of techniques
such as radio broadcasts for reaching poorer people and communities
and new approaches that can reach certain audiences (e.g. Internet
for middle class urbanites).
-
Commit to environment
and sustainable development education on a much greater scale than
in the past, drawing upon the pilot experience at both national and
provincial/special areas levels, and accessing both the public and
private school system.
-
Include NCS awareness-raising
components in both urban and rural support programs. The “brand
name” recognition of the NCS may well be mainly at the level
of stakeholders. What is important for ordinary people and communities
is awareness of environment and sustainability.
-
Thoroughly revise
the redundant NCS Communications Strategy. This strategy should be
revised in light of the NCS Unit’s experience with mass awareness
and, more importantly, using the research conducted to devise the
provincial strategies’ communications component. A round table comprising
stakeholders from the government, NGOs, and civil society should be
formed to review the existing environmental education and communications
strategies. In order to assess behavioral change as a result of mass
awareness drives, a market survey of different social groups in each
part of the country needs to be carried out. Without this, it will
not be able to measure future achievements. Obviously there is a need
to be focused on tangible issues where progress can be expected.
1.5
Focus much greater attention on incorporating the views and needs of poor
people and communities, and on their direct participation in sustainable
development goal setting and implementation.
WITHIN
18 MONTHS
-
Place greater
emphasis on identifying beneficiaries and ensuring their views, constraints
and strengths are actually addressed in actions resulting from the
NCS.
-
Make consultation
an accepted and workable element of every aspect of the NCS, drawing
upon strengths such as the Round Tables, focus groups, and mandated
activities such as EIA.
-
Design a feedback
mechanism from district, to provincial, to national strategies. Initially
this should communicate the results and concerns of recent consultations
and round tables. Thereafter a more structured set of communications
among the different ‘tiers’ of participation would be helpful, so
that the NCS builds from the bottom up, as well as in response to
national and international affairs relevant to the NCS.
1.6
Establish a multi-stakeholder NCS consultative forum, and strengthen other
partnerships among government, civil society, and the private sector.
WITHIN
18 MONTHS
-
Establish a cross-sector,
mixed government/civil society/private sector NCS consultative forum
that might meet about twice a year to review issues and progress.
-
Establish more
pilot projects based on voluntary and incentive driven approaches,
and on municipal level private-public-community partnerships for water
and waste management.
-
Place much greater
emphasis on the involvement of the private sector, including small
and medium-size firms, insurance and banks, and other organizations
not yet influenced by the NCS—creating the conditions for responsible
business to thrive and ‘closing doors’ to bad environmental/social
practice.
-
Encourage international
networks and partnerships between leading businesses and civil society
groups so that SD methodologies and technologies can be shared. Re-orient
research agendas towards priorities that are in-line with NCS and
national development needs.
-
Build policy knowledge
networks based on working partnerships so that experience is captured
and used to inform policy reform.
- If these points
can be addressed, the following perspective provided by MELGRD may serve
as a vision: “Pakistan on the path of progressive development,
characterized by effective legal, administrative, corporate and civil
society institutions that promote sustainable economic growth, sound
environmental management and social equity.”
NCS
MTR RECOMMENDATION 2
Switch
the NCS from top-down and supply-driven
to a bottom-up demand-driven
approach.
7.37
Priorities for the NCS should be driven as much as possible by problems
being experienced in the different regions of Pakistan and by the needs
of local people, communities and businesses within these areas. The NCS
can and should deliver benefits at this level, thus ensuring that interest
and commitment to its objectives will become more widespread, creating
on-going demand for practical conservation and sustainable development
action. This means improving the already promising participatory and analytical
elements of district conservation strategies and of other programs (e.g.
SAP social forestry projects, AKRSP initiatives) that directly link to
communities. In some cases, this could also be in cooperation with other
initiatives that have good local penetration. The production of the overly
elaborate, theoretically satisfying but almost impossible to implement,
complex plans represented by the existing NCS document and the draft Balochistan
Conservation Strategy should be avoided in the future. Indeed this unwieldy
comprehensiveness should be taken as a sign of a lack of participatory
assessment of practicable priorities. A crisp, and short strategy
paper may prove more workable, if it can lead to a productive, implementable
action plan.
2.1
Review the existing NCS and provincial experience with local level planning
and projects for applicability in the government’s devolution plans, and
for future activities under the NCS and provincial conservation strategies.
IMMEDIATE
-
Review the lessons
being learned about demand-driven approaches from existing models
being applied in the 14 NCS theme areas, e.g. community conservation
organizations, rural support programs, pollution control driven by
local interests (Kasur tanneries), district conservation strategies,
district environment committees (Punjab), and Orangi experience. Ensure
this information becomes quickly available to the key architects of
devolution and within the NCS “family” including the provincial
strategies.
-
NCS implementers
should actively participate in the public debate on devolution. They
should bring together their best experiences to date and apply this
knowledge on a priority basis.
-
Examine other
locally-based initiatives, for example specific sectoral experience,
the environmental components of family planning/community health programs
and activities under SAP, to determine sources of useful experience
for redesigning the NCS and related strategies.
-
Building on the
above, determine how gender considerations can be worked into local,
demand-driven initiatives and community organization of the NCS and
related strategies.
-
Consider how the
Balochistan Conservation Strategy, the Northern Areas proposed strategy,
and other efforts currently at a planning stage in the NCS or provincially
can be made as compatible as possible with a bottom-up demand-driven
approach even if it means significant changes, especially in the case
of the Balochistan Strategy.
2.2
Refocus NCS processes toward a demand-driven approach, with appropriate
changes in priorities and how they are set, establishment of client-based
relationships, and adaptive management.
WITHIN
18 MONTHS
-
Place much more
emphasis within the existing NCS on fostering both rural and urban
support programs that can deal with demands linked to poverty reduction
and local resource conservation and management, while building greater
local control over priorities and outcomes.
-
Explore the feasibility
of taking the district conservation strategy as a model for application
throughout the country, or at least on a more extensive pilot basis
beyond the NWFP.
-
Examine whether
it is feasible to create urban conservation strategies for the major
cities, and if so, develop a bottom-up, demand-driven approach that
can be used to identify a small number of high priority actions that
will improve living conditions for the urban poor in particular. Ensure
that international lessons of the Local Agenda 21 model are identified
and shared at the beginning of this effort.
-
Change the existing
approach of working from a fixed ten year agenda, with little or no
formal opportunity to incorporate learning or altered circumstances
during implementation. This change will demand discussion among various
NCS partners to draw out relevant experience on adaptive management
approaches.
2.3
Recognize the need for financial sustainability, accountability and effective
structures at local levels as prerequisites for this bottom-up approach.
WITHIN
18 MONTHS
-
Undertake a detailed
analysis of the impacts of various budget constraints on the implementation
of devolution and local sustainable development, using two or more
pilot districts.
-
If deemed appropriate,
support the merging of departments at the district level, for example
Environment and Public Health in order to achieve more effective poverty
reduction outcomes or other outcomes related to the NCS.
-
Support the development
of accountability mechanisms and capacity of local government through
technical assistance on the part of government and donors, with NGO
assistance to implement and monitor.
NCS
MTR RECOMMENDATION 3
Prepare
NCS-2 to serve as Pakistan’s sustainable development
strategy for 2002-2012,
with a greater emphasis on
poverty reduction and economic development
in addition to environmental sustainability.
7.38
The need for a workable sustainable development strategy in Pakistan is
stronger than ever. New issues have emerged, for example climate change,
environment and security, and trade and sustainable development. Circumstances
of governance, the economy and social development have shifted. And there
is a continuing decline in both human and ecological conditions. Furthermore,
there is greater awareness of the need to handle important crosscutting
issues that were not fully anticipated by the NCS, notably globalisation
and gender concerns. Finally, the focus of NCS-2 must still cover the
essential environmental and natural resource conservation needs of Pakistan.
But much more attention needs to be given to sustainability in economic
and social systems too, and their links to environmental sustainability.
Special attention is needed on the role of poverty reduction in bringing
about environmental sustainability, while providing direct benefits to
poor people, who are the most affected by lack of access to critical resources
and poor environmental conditions.
7.39
The sustainability of human resources and natural resources in a country
are closely linked—well-being of one cannot be assured without the other.
NCS-2 will have to consider inputs directly into the mainstream of both
primary education and primary health care systems.
7.40
NCS-2 therefore should be Pakistan’s macro-strategy for sustainable development,
operating synergistically with other important strategies such as the
SAP, structural adjustment loans, and the Biodiversity Action Plan. Always,
NCS-2 should have the major value added of ensuring sustainability through
integration of these “component” strategies. NCS-2 should be
developed and approved in 2001, for implementation in 2002. The transition
to NCS-2 presents an excellent opportunity for the switch to a demand-driven
approach, linked to the national focus on devolution. The suggested characteristics
for NCS-2 are discussed at some length in Chapter 6 of this report. Clearly
it will need continuity with work already started
3.1
Establish a transition team to design a revised National Conservation
Strategy for sustainable development, reporting to the Chief Executive
and Cabinet no more than 12 months after its establishment.
IMMEDIATE
- Appoint a NCS-2
transition team drawing on people from government, civil society and
the private sector, plus provinces/special areas. The team should include
representatives of each PEP partner, be led by a senior federal government
representative, have a well established link with PEPC, and proceed
in a consultative fashion. The team should be supported by a secretariat
with visibility and seniority. It should operate in a consultative fashion,
taking into account the need for a bottom-up and demand-driven approach.
WITHIN
18 MONTHS
-
Prepare a genuine
strategy document—short and focused with clear targets for action—not
a document that combines state of environment reporting, investment
approaches and other elements that divert attention from an implementable
strategy.
-
Take into account
specific sectoral and cross-sectoral strategies that have emerged
since the original NCS was developed, and ensure that they harmonize
with NCS-2 objectives.
-
Consider how certain
themes that have emerged since the original NCS ought to be treated
in NCS-2, for example, climate change, trade and sustainable development,
market incentive approaches, environment and security, and gender.
3.2
Gender integration should be given a much more prominent role within all
NCS activities, with achievable objectives that can be monitored and reported
on. While this is a matter that should be acted upon within activities
already underway or planned under the NCS and other strategies, it is
vitally important that gender integration be featured within NCS-2.
IMMEDIATE
- Decisions should
be made on a formal mechanism within the environmental assessment process
to address gender integration within projects, and on gender being a
prominent component within mass awareness and environmental education
and environmental health campaigns.
WITHIN
18 MONTHS
-
Incorporate the
results of the April 2000 national workshop into the NCS-2 Strategy
and ensure that gender considerations are adequately dealt with in
consultations for NCS-2 and State of Environment reporting.
-
·Assess both
the institutional (rules and policies, recruitment) and programmatic
elements (areas of work, project cycles, specific initiatives) of
gender integration within the stakeholder organizations linked to
NCS, with the intent of improving their performance over the coming
years. This assessment could be carried out by the organizations themselves
but with professional input from PEP partners or others. It should
focus on capacity building needs and institutional mainstreaming at
all levels within organizations, and within all sectors under consideration
within the NCS. Capacity building should achieve awareness and sensitisation,
but move beyond this to application of gender analysis tools, for
example, in program development and implementation, and to the use
of gender sensitive indicators within monitoring and evaluation.
-
·Build a
coherent picture within NCS-2 of how women can contribute as effectively
as possible to meeting NCS-2 objectives, and how they can share equitably
in the benefits of sustainable development.
NCS
MTR RECOMMENDATION 4
Make
government institutions work towards an
“enabling framework” for sustainable development.
7.41
Governance reform should take into account institutional change and capacity
building needs for sustainable development. The original concept of building
responsibility for sustainable development throughout government remains
valid, but it has not happened so far. Thus reform is needed in the way
leadership and coordination are expressed through the cabinet and policy
structures such as PEPC. A much more robust and widely respected unit
is needed to coordinate and facilitate the implementation of the NCS within
the federal government. And more attention needs to be paid to fostering
and improving the relationships with provincial and local government.
Indeed, with a demand-driven model based on devolution, drastic changes
are needed in how the national government responds to local need.
7.42
Government will have to depend to a much greater extent on effective,
efficient partnerships with NGOs and the private sector to implement sustainable
development. Experience to date suggests that changes are needed to avoid
an excessively rigid and slow-moving set of relationships. Government
agencies rarely have played a facilitative role. They appear to hinder
rather than help progress with the NCS at times. This must change—drastically
and as quickly as possible. The overall need is to have all actors working
as part of the enabling framework.
4.1
Revamp the “macrostructure” for NCS administration and management
to improve policy, coordination, planning and implementation capacity,
to increase effectiveness in working with the provinces and special areas,
and to facilitate activities not directly under the control of government.
IMMEDIATE
-
A champion for
the improvement of NCS administration and management is needed. Logically
this responsibility at the senior level will be the Minister responsible
for MELGRD and PEPC. The Minister should issue a directive delineating
a plan for improvements.
-
PEPC should have
its composition, mandate and functioning updated. It should include
representatives from the Finance Ministry and the private sector financial
community, and additional representatives to cover areas of growing
significance such as trade and foreign affairs. Unless decisions are
made to restrict the focus of PEPC to environmental issues only (which
is not recommended), PEPC should be transformed into a national commission
dealing broadly with sustainable development, as defined in the context
of NCS-2. This choice must be carefully considered, for there needs
to be an effective policy forum and senior body in place to provide
direction in the coming year and beyond. PEPC will have to meet more
regularly and be more accountable for its advice. This structure needs
to accommodate a demand-led approach.
-
The NCS Unit in
MELGRD has been unable to perform its task effectively for a number
of reasons, including its low standing, poor continuity in leadership,
and inadequate access to sufficient professional staff. It should
be disbanded. To more effectively undertake coordination responsibilities
and meaningful MRE, a Policy, Planning and Evaluation (PP&E) Section
should be created within the Ministry under a Director General, but
with direct links to the Secretary. This Section should be staffed
by professionals in relevant sustainable development fields. Professional
staff from the existing NCS Unit should be brought to the PP&E
Section and new professional staff recruited, as required. More radical
possibilities exist and might be considered, for example, setting
up an independent environmental monitoring organization, or by amalgamating
environmental and economic interests into a single national council.
-
The Environment
Section in the Planning and Development Section has been functioning
under “stop-gap” arrangements. Continuity has been missing;
instead there are frequent “adjustments.” The “Recruitment
Rules of the Environment Section” have been approved. Regular
professionals should be inducted into this Section as quickly as possible
to continue building capacity there. The Section should retain its
independent existence and not be made part of restructuring.
-
The federal government
needs to build a sense of ownership towards the NCS at the provincial
and special areas level. At present there is a sense of alienation
since the provinces feel poorly served. There are three key points
that could help reverse this situation:
-
Speed up the flow
of information, benefits and approval processes, thus reducing the
sense that federal action hinders rather than facilitates action.
Blocking grants for minor technical reasons is a particular irritant.
-
Facilitate sharing
of experience among provinces and special areas.
-
Continue to build
sustainable development initiatives with provinces where no PCS exists,
but move towards development of provincial strategies only when there
is a clear request to do so.
4.2
Ensure that reforms planned for the civil service are well-instituted
within the NCS management system, with particular attention to capacity
development.
IMMEDIATE
TO 18 MONTHS
-
There are several
key reforms that can improve NCS implementation:
-
Reduce the frequency
of transfers so that government staff remain in a specific job long
enough to understand the position and achieve objectives.
-
Build professional
staff into key positions rather than rely upon generalists. The need
is very widespread: within EPAs (federal and provincial), Environmental
Section of Planning and Development, NCS focal points within government
sectoral departments, policy units, regulation, enforcement, monitoring
and evaluation units.
-
Focus on capacity
building through action initiatives—‘accomplish while learning.’ Capacity
development is about managing the process and outcomes as well as
technical skills development.
-
Recognize that
all sectors need capacity development simultaneously if they are to
function as parts of an overall effort to implement the NCS.
-
Recognize and
use the support function of IUCN-Pakistan and others, for example
from the private sector, more effectively as a source for capacity-building
efforts within government.
4.3
An effective framework for monitoring, reporting and evaluation (MRE)
of the NCS should be put in place.
IMMEDIATE
- Set up the MRE
system in a fashion that fosters adaptive management, through effective
learning and periodic revamping of objectives and action based on evaluation
results. This should use the results of the MTR as a starting point.
It should report to a Cabinet Committee, and be supported by an NCS
steering committee in the MELGRD, comprised of key stakeholders, with
PEPA acting as its secretariat.
WITHIN
18 MONTHS
-
PEPA should, as
mandated by law, release an annual ‘Pakistan State of the Environment
Report” starting within the next fiscal year, if not before.
-
MELGRD should
regularly collect and disseminate environmental data to all stakeholders.
The role and strengthening of the Federal Bureau of Statistics should
be recognized and addressed as part of this process.
-
Disclosure and
dissemination to communities of information gathered through public
agencies should be strengthened and institutionalized. Decisions at
all levels suffer because this is not done at present.
4.4
Clarify rights, responsibilities, relationships and accountability for
results on the part of each agency charged with implementing components
of the NCS.
WITHIN
18 MONTHS
- The lack of accountability
measures for NCS objectives perpetuates a system of promising more than
can ever be delivered, and reduces public and private sector confidence
in government. The transition team charged with preparations for NCS-2
should recommend a system of accountability, and clarify responsibilities
for the implementation of each recommended area of engagement.
NCS
MTR RECOMMENDATION 5
Expand
the range and scale of financial mechanisms
for meeting NCS objectives.
7.43
Sustainable development is about investment—for addressing problems arising
from the past; for safeguarding resources, health and livelihoods today;
and for improving prospects for economic, social and environment conditions
in the future. The investments in the NCS appear to have been skewed towards
a few traditional natural resource problem areas and were much less than
originally anticipated. There are questions about how effective many of
these investments have been. Given the financial crisis within government,
it is clear that competition for funding of programs and even routine
activities will continue to be very difficult. Thus new and innovative
approaches to funding sustainable development initiatives is required—especially
those that can channel private sector investment positively towards sustainability
and away from damaging practices.
7.44
Elsewhere in the world there is a move towards such innovative approaches,
even in countries not facing the same financial dilemmas as Pakistan.
Part of the solution lies in addressing perverse macroeconomic policies.
More of the financial burden needs to be shared by those creating environmental
problems, especially for industrial pollution control. The need to value
resources in a fashion that allows an equitable distribution of revenue
and other benefits to local communities, and covers their management costs,
is a challenge for which there are existing, promising pilot activities.
And even very poor communities can benefit from micro credit approaches
that simultaneously help to create wealth while improving environmental
conditions. Finally, Pakistan can try to capture a greater share of the
international financial transfers now being dedicated to addressing global
environmental sustainability concerns.
5.1
Expand internal resource mobilization in support of the NCS and provincial
conservation strategy initiatives.
IMMEDIATE
-
Implement the
pollution tax system, even if on a pilot basis.
-
Ensure the concept
of a sustainable development fund becomes functional.
-
As part of Pakistan’s
structural adjustment plans, examine the potential of cost-savings
that might be made through implementing elements of the NCS, especially
those areas dealing with perverse subsidies, taxes and self-financing
mechanisms, and possible means for support through structural adjustment
lending and debt for nature swaps.
WITHIN
18 MONTHS
-
Look internally
at pricing (energy, water), the process of importing pollution control
equipment (where extra charges offset the import duty relief already
granted), efficiency gains (water use, privatising some municipal
services, eco-efficiency in industry, switch to natural gas), credit
access and self-financing, as means to reduce costs of implementing
environmental and natural resource management and monitoring.
-
Expand cost recovery
initiatives through user fees (for higher quality services, solid
waste removal, and dedicated taxes linked to actual environmental
improvements, where people are willing to pay.
-
Expand the number
of rural support programs with a conservation component, based on
a combination of micro credit and community savings initiatives. There
is also potential for this to happen in selected urban settings.
-
Reallocate funding
within government budgets to address current imbalances that exist
among key priorities of the NCS; and ensure this matter is addressed
in relation to NCS-2.
5.2
Develop innovative sources for funding and investment in environment and
sustainable development. These would have the added benefit of acting
as economic incentives for sustainable development.
WITHIN
18 MONTHS
- Green business
opportunities should be fostered in Pakistan. Examples include environmental
control engineering manufacturing and installations, general opportunities
related to expanded trade in environmentally-certified products and
businesses, energy conservation companies that make their money from
the savings to businesses resulting from energy retrofits, and ecotourism.
Because Pakistan is at a very early stage and with numerous barriers
to smooth implementation, it will take time for the full potential to
be realized. There should be a green business and sustainable markets
components to NCS-2 and an examination within both government and the
Pakistan Chamber of Commerce of how to create an enabling environment
for private sector entrepreneurs, and in some cases, local communities
to develop opportunities, for example an SD innovation fund.
- Pakistan should
seek a greater share of global funds and markets (e.g. via GEF, carbon
funds, various foundations and other sources for biodiversity protection)
that reward global benefits produced by individual countries for the
international community. To do so will require competitive proposals,
improved performance on existing transfers (e.g. under the Montreal
Protocol), and demonstration of a capacity to monitor results.
NCS
MTR RECOMMENDATION 6
For
donors, demonstrate commitment to a renewed NCS
through consistent and coordinated support.
7.45
Relationships between Pakistan and donors have slipped to the point where
several donors are no longer actively pursuing new initiatives or have
pulled out. In addition to the factors such as nuclear testing and change
in government that have led to this situation, there is a strong sense
of frustration on the part of some donors about the general level of achievement
and even government’s capacity to develop suitable plans for implementation.
On the part of the government and some NGOs, there is frustration about
the consistency and capacity of donors to make commitments towards priorities
that are in Pakistan’s best interests. Indeed, there is a level of wariness
about extending the already heavy burden of debt with more foreign loans,
even where these appear to be worthwhile. Improved collaboration between
donors, government and civil society organizations is highly necessary,
although not an easy task at present. Donors need to recognize the value
of staying with the demanding task of supporting Pakistan’s sustainable
development needs. If they do not, problems are likely to become worse
within Pakistan, with longer-term repercussions not only for the country
but for the world.
7.46
A great value of the NCS is the innovative partnership arrangements that
have been initiated between government, NGOs and, to some extent, with
the private sector. These have both depended upon, and opened up important
opportunities for development assistance cooperation that can be built
upon and expanded in the future. There should be a more coordinated approach
to donor assistance in order to make best use of limited funding, especially
in relation to these partnership opportunities.
6.1
The Government of Pakistan should take the lead in establishing a donor
coordination forum for the NCS, covering the existing and proposed range
of initiatives in environment, natural resource management, and sustainable
development, and, as appropriate, linkages of these areas to other key
donor themes, especially those for health and social action, economic
growth and poverty reduction.
IMMEDIATE
-
Convene a meeting
of donors to discussion the conclusions of the MTR, set out the pathway
for NCS-2, and develop a plan for improved collaboration among donors
and between government and donors.
-
Individual donors
should take stock of what they believe to be the value of their contributions
to the NCS and, in general, of the scale of their investment in support
of environment and sustainable development—and how they might address
these themes in the future individually and on a collective basis.
It would be helpful to have this baseline information accessible in
the early stages of planning for NCS-2. For example, the UNDP commitment
to a National Sustainable Development Programme (NSDP) will have considerable
synergy with many of the recommendations noted here.
6.2
Donors should seek ways of assisting both government and non-government
implementers of the NCS as they develop a demand-driven approach for NCS-2.
WITHIN
18 MONTHS
-
Donors should
pay greater attention to environment and sustainable development as
they put together support for devolution.
-
Planning for support
of NCS-2 ought to begin as soon as possible to ensure that there will
not be a hiatus in donor funding as occurred in the early years of
the NCS.
-
There is a need
to evolve policies and funding for the particular circumstances that
currently exist in Pakistan. It is especially important to recognize
the special role that civil society organizations and hybrid organizations
such as IUCN-Pakistan (which includes both governmental and non-governmental
bodies as members) have in management and capacity-building for sustainable
development. They require continuity in funding if they are going
to be strong partners. Their needs should continue to be addressed
by donors, no matter how difficult donor relationships with government
may be at times.
-
Some of the areas
suggested to the ERT for future consideration by donors are: energy
production systems, hazard preparedness and management, environmental
security and conflict resolution, climate change and sea level rise,
and monitoring using sustainable development indicators.
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