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Chapter 1: Towards a Sustainable State 1

Chapter 2: Sustainable Development: Visions, Objectives,and Strategies 8

Chapter 3: Establishing the Process 19

Chapter 4: The Sustainable State: A Look at State Level Sustainable Policies 33

Chapter 5: A State Level Model 71

Bibliography 94

Appendix A: State Policies

A Sustainable Development Model for the States

The concept of sustainable development has evolved in recent years to describe the linkage

of economics, the environment, and social equity into a comprehensive strategy that meets

the needs of today and tomorrow. In 1972, the Stockholm Conference on the Human

Environment recognized the alarming rate of environmental destruction and the need for

action. As a result the United Nation's Environment Protection commission (UNEP) was

formed. For the next decade, the world experienced a series of international and national

activity focused on environmental protection and resource management. What became

apparent in these movements was the linkage of the environment to economic development.

In 1983, the United Nations established a commission chaired by Gro Harlem Bruntland of

Norway. This commission, the World Commission on Environment and Development

(also known as the Bruntland Commission), set forth to gain an understanding of the

growing impact of human activities on the natural resource base, and to develop a strategy

for actions that address these issues. Their final report, Our Common Future, has

provided the foundation for much of the subsequent world-wide activity that links the

environment with economics. It is this foundation that recognized the need for cooperative

and collaborative policy-making that serves as the basis for sustainable development at the

state level in the United States.

The need to integrate equitable development policies with environmental protection is

obvious. Since the 1950's, the industrialized nations have experienced tremendous

advancements in the production of goods, the economic expansion , and the consumption

of resources. While bringing more goods to the individual, these advancements have also

depleted natural resources on which our future is based. The question naturally arises: Can

we continue to deplete our future capital and maintain the "western" standard of living to

which we have become accustomed ? Multiple studies indicate that we cannot (Brown,

1990; Daly and Cobbs, 1989; Milbreath 1989).

The Earth does not have the resources to provide the standards of living to everyone that

we in the United States enjoy. We are currently utilizing resources at a rate faster than

they can renew themselves, thus putting us on the path of depletion. The United States

with 4 percent of the world's population, uses more than 25 percent of the world's fossil

fuels. 2 Currently, we possess the technology and the ability to reduce our consumption

patterns between 50 - 75 percent. But barriers like conflicting policies, fragmented

programs, and disjointed decision-making prevents us from integrating resources and

optimizing output. Furthermore, our ability to use technology to solve many of our past

problems has lead some to believe that we can solve our current and future problems with

the same "techno-wizardry"; a solution that does not always address complex social issues.

Sustainable development aims at synthesizing programs so that resources, capital, and

distribution are maximized.

1 Donald Lesh and Diane Lowrie. Sustainable Development; A

New Path for Progress. Washington DC; Global Tomorrow

Coalition, 1989.

to manage the linkage in a sustainable way. Sustainable development links economics, the

environment and human resources and equity to provide an integrated and holistic solution

Many industrialized countries have embraced the process of sustainable development by

establishing a structure to integrate the decision-making in their multiple institutional

structures. Many have formulated sustainable development strategies and are implementing

various stages of the process. Although the United States has an Environmental Protection

Agency that is considered one of the world's best, and a history of sound economic

development, the marriage of the two has been slow in evolving. Many developing

countries look towards the United States as a model for their own growth, but the US has

made only a belated beginning towards a sustainable development strategy. If the world is

to revive a quality of growth needed to sustain international well-being, the structure for

this model must also be sustainable.

One method to gain support for sustainable development in the United States is to initiate

the activity at the state level. Since late 1970's, the United States Government has been

transferring authority from the federal to the state level, mainly through cuts in federal

spending and technical support. 3 The 1970's and 1980's also brought the addition of

many state agencies relating to the environment, civil rights, consumer affairs, child

protection, health care, ethics, and women. 4 The reduction of federal support and the

additional bureaucracy left states with new responsibilities. This transfer of responsibility

can be the catalyst for enabling states to link long term economic viability with a healthy

environment.

3 Thomas R. Dye. Politics in States and Communities. New

Jersey; Prentice Hall, 1988. pp.72-80

4 Deil Wright, F. Ted Hebert, and Jeffrey L. Brudney.

"Administrative Activism in the American States: Three Decades

of Aggregate, Agency, and Administrator Actions and

Activities." A paper prepared for the American Political

History has shown that when states lead, the nation, as a whole, follows. The fact that our

political system reacts to a greater degree to constituents than to the country as a whole,

further emphasizes the need for sustainable development at a state level. 5 There tends to

be a set of values and ethics, and a sense of pride that manifests itself within states. A

recent backlash against the Reagan/Bush years of deregulation and decentralization has

prompted a push towards uniform national rules. This further emphasis the need for a

common foundation like sustainability to be incorporated in intergovernmental relations.

By utilizing the strengths of state level management, sustainable development can be

formulated to help local constituents while achieving a larger common goal.

The objective of this research is to develop a state-level sustainable development model.

The elements of sustainable development (as described in chapter 11), are interwoven to

produce a strategy to maintain and even increase a sustainable quality of life. Due to the

multitude of elements involved in sustainable development, I will be limited as to the depth

in which each will be explored. It is my intention to show how these elements can be

integrated into comprehensive and interdependent programs. In order for this integration

of elements to occur, two components must be addressed: the state level policies and

programs geared towards sustainable development, and the management or institutional

process for implementation.

In evaluating the integration of various sectors, the report will utilize the three mandates

for sustainability embraced by the Bruntland Commission:

- to re-examine the critical issues of environment and development and to formulate

concrete and realistic action proposals to deal with them.

- to strengthen synergy on environment and development and to asse^" and propose

new forms of cooperation that influence policies and events in the direction of

Thesis Overview and Research Method

Developing a state model for sustainable development requires that current and proposed

activities be evaluated against the foundation of sustainable development and synthesized

into action-oriented policies. The methodology used to develop the model is as follows:

1) define and identify the key elements of sustainability,

2) identify the institutions and processes used to integrate elements and implement

programs,

3) analyze current state-level policies and practices incorporated in the United States

that meet sustainable criteria, and

4) synthesize findings into a model format.

Chapter II examines the visions, objectives, and strategies of sustainable development. As

sustainable development gains prominence, its definitions and applications are subject to

variations around its central theme. The goal of this chapter is to establish a clear

definition of sustainable development for use in developing a state-level model. From this

definition, a baseline of key objectives, strategies and elements are derived. Through case

studies, collective reports, journal articles, and interviews with professionals in the field, a

set of matrices is configured that address the interrelationship and cooperation among the

elements. These matrices are the central locus for the development of the state model.

Chapter III discusses the relationship of institutional structures and management processes

to the implementation of sustainable development, and identifies the sectors, stakeholders,

and organizations that are involved. Three sustainable development processes will be

level, the example will be a U.S. sustainable development coalition in the Roanoke, Virginia region. The common denominators of these processes and programs will be established. Interrelations and dependencies among sectors and institutions are correlated

to provide insight into the responsibilities required to execute a sustainable development

model.

Chapter IV reviews state policies around the nation that relate to sustainable development. Although most of these policies are not defined as sustainable development policies by their sponsors, each of the policies addressed in this chapter has qualified as sustainable through a method that evaluates whether the action integrates or affects economics, the

environment, and equity issues; whether the policy can achieve short-term objectives without compromising long-term resource availability. The compounding of various policies can prove to be insightful for formulating a comprehensive model. This chapter discusses what a policy contributes to sustainable development through research of policies, interviews, and personal visits to regions that have begun to implement the concept of sustainability.

The final chapter synthesizes information acquired in previous chapters to formulate a state-level model. This model is intended to provide individual states with a compendium of techniques and polices for establishing a sustainable development process. It will be divided into two parts: 1) a guideline to the process and organizational structure used to

develop a sustainable development strategy, and 2) the policy criteria and program

recommendations required to enact sustainable decision-making. It will pull together the

Visions, Objectives and Strategies

'Sustainable Development is development that meets the needs of the present without compromising the ability ofthefiiture to meet their own." 1 This quote from Our

Common Future is perhaps the most widely used definition of sustainable development. It

requires that basic needs be met and to extend the opportunity to pursue a better life to all,

including future generations. While basic needs are socially and culturally defined,

sustainable development also requires that these needs be within the carrying capacity or

limitations of the Earth. The use of this concept links issues of economics, the

environment, and social equity into an interacting system.

Sustainable Development is a progressive transformation of the economy and the social

structure. It is the restructuring of values and goals that define our view of and

relationship to the Earth. Sustainable development is not an environmental program or an

economic growth strategy. It is a process of integration and linkages to maximize the

efficiency of capital, natural and human resources. As Colin F.W. Isaac, Executive Director of Pollution Probe Foundation, states, "it is sustainable development, not

sustainable economic development or sustainable economic growth. We are trying to

sustain the Earth and the system that supports us, not economics. Development is not

another term for pointless growth." 2

Sustainable development does require growth. Growth of this sort is defined as the ability to obtain a better quality of life that is equally distributed and accessible to all. This

1 World Commission on Environment and Development. Our Common Future. Oxford; Oxford University Press, 1987. p. 43.

heritage, as well as economics.

Recently the words development and growth have been used interchangeably, especially in

economic terms. However, there are very important differences in these two concepts.

Webster's New Collegiate Dictionary defines development as "to evolve the possibilities

of; to move from an original position to one providing more opportunity for effective use."

Growth suggests the expansion of the physical dimensions of the economic systems;

expansion that may be greater than the rate at which these supporting resources can renew

themselves. Since the physical ecosystem of our resources is finite, limitless growth is an

eventual impossibility. 3 It is development, not economic growth that can engender

sustainability.

If we are to grow sustainably, our development must utilize resources more effectively and

efficiently. We must establish policies and programs that do not 1) exploit resources at a

rate faster than they can be renewed, 2) use quantities that cannot be equitably distributed,

3) cause cumulative degradation of the environment, and 4) promote activites that lead to

the threat or extinction of other life forms. Sustainable development is a means of

managing our resources so that our future is not at risk. It does not mean that we should

stop using resources, it means we must think more carefully about the long-term impact of

our decisions.

Sustainable Development on a State Level

Each state, like the nation, is plagued with unsustainable activities that affects the

livelihood of its citizens. Pollution of the environment, overexploitation of resources, an

contribute to unsustainable threats on a state level. The sustainable development process

aims to take these threats and modify them into cooperative policies by assessing the state's

resources, understanding the limitations, and creating innovative and interwoven policies

that lead to a more self-reliant, balanced region. At the state level, it entails the possibility

of integrating policies of historically fragmented agencies or the tightening standards above

federal levels for future development. Finally, it includes dimensions of cooperation

between states.

In 1989, U.S. President George Bush said,

"The fact is, our ecology and economy are interdependent... We can and should be

Nature's advocate. And that means an active stewardship of the natural world. It's

time to renew the environmental ethic in America ... The tradition of purely

federal, top-down directives will never be enough. So we're working to promote

more creative state and local initiatives, drawing on the energy of local

communities and the private sector into the cause. And from today forward, it is

the ethicallegacy we must inspirein every American." 5

Although this statement has not often been translated into action by our executive

administration, it does contain several basic imperatives of sustainable development. First,

sustainable development is a value and ethic change as well as an economic change.

Second, it is at the grassroots level where the most effective change can take place. And

last, it is our responsibility to be stewards, not owners of the land.

Developing a Vision

The first step towards sustainable development is creating a common vision. 6 A vision

that focuses regions on the outcomes of activities, rather than concentrating on the

differences of the action steps themselves. Despite differences in geographic location,

5 Ibid. p.21.

political biases, or cultural diversity, states can agree upon a set of common issues:

- a clean environment for their citizens, - uncontaminated food;

- concern for family and future generations; - preserving and bettering the quality of life;

- maintenance of the resources on which they depend;

- a sense of community, hope and determination, and;

- a commitment to action.

When developing a course of action for sustainable development, unifying concerns can

allow diverse sectors to seek a common goal and therefore establish integrated actions.

Today's American society often incorporates unsustainable practices in agriculture,

industry, energy, and social services even when the technology is available to otherwise

adopt sustainable methods. 7 The distribution inequities of wealth, resources, and citizen

participation reinforces all of these problems. By looking at the relationships of various

sectors and the underlying roots of the problem, sustainable policies can be attained.

Provencial Environment and Economic Round Tables in Canada and goverments like

Norway and the Netherlands have successfully utilized this approach.

Developing Objectives

Developing objectives of a sustainable society requires that the common vision be expanded

into a model of future policies and programs. Elements and priorities of these elements

may vary from state to state but the vision and objectives of sustainable development can

remain the same. Listing the actions needed for a sustainable development program can

help leaders to visualize and communicate this integrated process. Nine city/regional

communities formulated a list of policies and procedures to incorporate a future vision.

11

- Practice global stewardship,

- Slow population growth and improve child/maternal health care, - Impart environmental education into the curriculum of grades K-12, - Increase the understanding of global interdependence,

- Improve the status of women and minorities, - Promote recycling and reuse,

- Make agriculture sustainable,

- Increase energy efficiency and employ renewable energy options,

- Decentralize institutions and empower personal involvement, - Reduce levels of consumption,

- Adopt natural resource accounting (full-cost accounting)

- Promote cooperation and conflict resolutions within regions and between regions, - Value cultural diversity,

- Redefine the "quality of life",

- Increase social responsibilities of private enterprises,

- Increase public awareness for sustainable development through the media, and

- Reduce the third world debt.

Envisioning a sustainable society also means understanding the limits of resources

available. As the synergy between economic systems and ecological systems continue to

grow, the information requirements will also expand. Information in a sustainable process

will need to reflect not only aggregate measurements like the GNP, but measurements that indicate the levels of distribution and limitation. We must continue to track production yet also include the resources depleted and the waste generated.

Overconsumption in the United States is an environmental problem unmatched in severity

by any other factor. Sustainable development must answer the question of how much is

enough ? Every American child has more pocket money per year ($230/year) than the

poorest 10% alive. 8 As Christopher Flavin of the World Watch Institute reflects, "The

time honored values of integrity of character, good work, family and community has

seemed to become lost in our rush to riches." 9

8 Ibid, chpt 9.

Developing Strategies

Once the objective of sustainable development have been developed, basic strategies can be

established to provide direction for formulating action plans. A sustainable development

strategy establishes the planning mechanisms by which assessments, solicitation of

information, identification of critical issue areas, and formulation of policy alternatives are

made. Strategies should include a set of criteria by which a commission can measure the

sustainability of their plans.

The basic criteria formulated in Our Common Future, and those adopted by other

countries, are practical for the state model as well. These principles are broad enough to

adopt the differences among states, yet defined enough to influence policies and programs.

The management process used by various models will be detailed in chapter III, but each of

these models contain the following priciples as defined by the Bruntland Commission:

Reviving Growth: Poverty is a major source of environmental degradation.

Resolutions of debts, inequities and security must be addressed in order for growth to

be revived. Reducing the poverty gap can provide the ability for basic needs to be

met while decreasing dependence on overexploitation of capital for short-term

survival. Reviving growth in sustainable development models means access to

resources through improving efficiency and distribution, rather than the physical

Changing the Quality of Growth. Communities that have embraced sustainability

view growth as one in which sustainability, equality, and social justice are prominent

social goals. To them, the quality of growth is more than an aggregate economic

number, it is an integrated measure that reflects better '"come distribution, improved

health services and education, preservation of cultural heritage, an environmentally

sound energy pathway, and reduced technological risks.

Conserving and Enhancing the Resource Base: Sustainability requires the conservation

of natural resources including air, water, land, and flora. It demands efficient use of

energy and raw materials, a reduction in per capita consumption, an increase in

13

in plants and animals is a critical element in maintaining the balance of the resource base, as well as providing essential products for medicine, agriculture, and industry. Ensuring a Sustainable Level of Population: Population politics should be formulated and integrated with other economic and social development programs such as

education, health care, and the expansion of the sustenance base for the poor.

Institutions that relate economics and the environment have found that the quality of life is dependent upon the relationship of the growth rate to capital and natural resources. , ^

Reorienting Technology and Managing Risk: Some areas of the United States still

rely on economic development centered around cheap land and labor. By devaluing

these components disasterous consequences to the quality of the environment and advancement of social conditions result. The capacity for technical innovation needs to be enhanced in less developed areas where skill levels, and growth opportunities are limited. The orientation of technology must pay greater attention to environmental issues. The areas of research, design, manufacturing, and marketing should consider

environmental and social factors in their decisions.

Integrating Environment and Economics in Decision-making: One finding consistent with sustainable development models is the integration of economics and the

environment into their decision-making process. Full environmental and social costs

are included in policy evaluations no matter what sector (energy, trade, transportation,

agriculture, land use planning, etc.) is affected. Policy-making bodies should be responsible for the impact of their decisions, requiring implementation and

enforcement to be included in the same institutional structure. They must move from

reactive methods of regulations and expenditures to proactive measures that focus on the prevention of environmental damage.

Reforming Transboundary Economic Relations: Improvements in market access,

technology transfer, and interboundary finance are necessary to widen opportunities and to diversify the economic and trade basis for building self-reliant states.

Compacts and collaboration between states, rather than competition, builds on local strengths while providing resources to transform weaknesses into competence.

Strengthening Cooperation: New dimensions of multilateralism are critical to

sustainable development. We can no longer manage by fragmented political bodies

must be assigned to the assessment, research, and resource management of all fields in

development if we are to understand these interdependencies. Most of all, public

participation is essential in the decision-making process.

Linking Strategies with Key Elements

Ecology and economics are becoming ever more interwoven at local, national, and

international levels. As a community's economy and population grows, it pulls more

resources from its finite base. These resources and economic activities need to be assessed

in order to maintain a balance that will ensure current and future stability. This association

between activities and assets is best described in a matrix of their relationships. These

matrices can help to visualize associations between the sectors, and alliances among the

activities of sustainable development.

The key elements of sustainable development include all three major foci previously

defined: economics, the environment, and social equity. The importance of linking and

integrating elements can be described by an analogy from Our Common Future:

- First, it is understood that environmental stresses are linked to one another.

- Second, environmental stresses and economic development patterns are linked.

- Third, environmental and economic problems are linked to social and political

problems.

- Finally, these problems are not only within, but between political boundaries

The cross relationships of these elements to the strategies in the preceding section form the

basis of a sustainable matrix as illustrated in table 2.1. These elements include:

Income Distribution: Poverty can force people to misuse resources for short-term

survival, sending them into a spiral of increasing despair. The inequities of economic

distribution often relates to disparities in areas such as health conditions, crime,

poor must be reduced to provide more equible distribution of the wealth and the

creation of more self-reliant communities. 11

Social Justice: Income is not the only issue in regards to equity. The cornerstone for

social justice is associated with fair access to resources, education, health and child

care, and political participation regardless of gender, race or social class. It seeks to

empower societies to have the capability of self-determination. Access to democratic

principles, information, and public participation are critical pathways for social

justice.

Ethics and Values: Ethics and values play an important role in establishing the

priorities of our needs. Our hierarchy of values define our actions and applications of

resources. For example, the steep increase in America's consumption rate over the

past several decades has sent the number of shopping centers higher than the number

of High Schools. 10 Fragmentation and individual agendas often result in conflicts

and decisions that polarize winners and loosers. Sustainable development promotes

values and ethics that reflect holism, cooperation, and stewardship. The advancement

of these values are promulgated through education systems, economic measurements,

institutional structures, and community involvement.

Peace and Security: Security is more than a military expenditure, it involves the

assurance that individuals can obtain basic needs. When people are secure in their

needs, aggression is minimized, populations stabilize, and many of the causes of

environmental degradation are reduced. As access to resources become more

equitable, this security will allow us to redirect military expenditure to programs that

diverify our economic and stabilize our environment. 11

Economic Development: All of the models evaluated for this report emphasized the

need for economic development actors to integrate the full impact of their activities,

and to capture these costs and benefits in their decisions. Measurements like the GNP

are aggregate in form and do not take into account distribution or loss of natural

capital; these often capture the so-called benefits of activities without measuring the

11 World Commsion on the Environment and Development, Chpt 2.

10 Brown, 1991, Chpt. 9.

be viable when integrated with the resource base that supports it.

Environmental Quality: The quality and quantity of environmental resources directly

affects our ability to maintain a secure economic base, and the ability to improve the

quality of life. Pollution of air, land, and water, global climate change,

contamination from agricultural practices, toxics from urban run-off, and inefficient

energy systems deplete our fragile resource base. To assure preservation of natural

endowments, sustainable development strategies look towards programs that

encourage innovative incentives, education, transboundary cooperation, and

conservation.

Agriculture: Agricultural policies must adress the balance between the economic

profits of agribusiness and the degradation of the environment and the associated

health impacts. Soil erosion and the over-use of chemicals is a serious and wide¬

spread problem. 13 Unsustainable agricultural practices are taking the land to a

saturation point beyond reversibility. Run-off from over-use of pesticides and

fertilizer is rapidly polluting ground water supplies for much of our rural

communities. Sustainable agricultural practices include conservation, fair trade

Land Use Planning: Urbanization and community development are becoming financial

and environmental tragedies. 14 Our cities lack comprehensive plans to integrate

dependent elements that maximize the potential capacities. Transportation planning,

building codes, zoning, and energy sources do not utilize least-cost options,

full-costing procedures, or the most efficient technologies. It is estimated that between

50% and 75% of our energy use could be reduced through technologies currently

available and cost-effective. 15

Hazardous and Solid Waste: Over the last 30 years, the average American has

increased his or hers solid waste discharges from 400 pounds per year to over 6,000

pounds - a fifteen-fold increase; our production of goods per capita has increase

12 Herman Daly and John Cobbs. For the Common Good. New York,

1989

13 Brown, 1990.

14 World Commission on Environment and Development, Chpt 2.

seven-fold since WWII. 16 Initially packaging improved health considerations and

prolonged the human life span. But today, much of our packaging is unnecessary.

Reuse, reduction and recycling must be increased by states. Changes in packaging

and processing goods should be made. Industrial hazardous waste can be prevented

through process modifications, material substitutions, and design changes. 17

Household hazardous waste can be reduced through education and the availability of

non-toxic alternatives.

Natural Resource & Biodiversity Management: Approximately 100 plants and animals

become extinct every day. 18 These animals and plants are part of the web of

causation, and the disturbance of this web interrupts the balance of the natural system

on which we depend. The need for maintaining genetic diversity is critical when

developing new food and medicinal sources. Sustainable strategies strive to preserve

natural habitats and evaluates the impact of their limitations.

Energy Resources: An average U.S. person consumes more than 80 times the energy

than a person in Sub-Sahara Africa. 19 Our consumption of energy is the greatest in

the world, increasing four-fold since 1950. 20 We are consuming energy at a much

greater rate than its renewal and in ways that drastically degrade the environment. We

must change our energy habits if we wish to continue to develop. Sustainable models

use conservation, renewable sources, and efficient technology that is currently

available and cost-effective, while expelling subsidies and other economic incentives

that promote unsustainable behavior.

We must reach our sustainable goals not by endangering the very resources on which we

depend, but by increasing efficiency and ensuring equity. Once priorities, strategies and

elements are identified on a state level, they can be formulated into a matrix to be used for

16 Walter H. Carson, ed. A Citizen^s Guide to Sustainable Development. Washington DC; A publication of Global Tomorrow

Coalition, p.3.

17 Inform Pollution Prevetion

18 World Resource Institute, World Resources 1990-1991. New York; Oxford Press, 1990, p. 8.

19 Brown, 1991.

Joining economics, the environment, and social equity is possible. Other countries, as well as local communities have begun to recognize this fact. However, here in the United States we must end our hallmark of skyrocketing consumption and begin to put concepts

into action. David T. Buzzelli of Dow Chemical, Inc. best summarized this position by

saying; "If we 'd been paid 50 cents for every word that has been written on sustainable development we 'd be rich. If we received 50 cents for every action, we 'd be paupers. "21

(A sample ot relatinnshlps and actions) Principles Revive Growth Elements Affected Income Distribution Equity Social justice Envifonmentai Quality Agriculture

Changs Quadity of Growth Ethics and Values

Social Justice

Security

Natural Resources

Conserve and Enhance the Resource Base

Natural Resources

Land Use Planning

Ethics and Values

Agriculture Biodiversify

Energy Alternatives

Peace & Security

Natural Resources

Agriculture Energy

Reorient Technology and Hazardous and Solid Waste Manage Risk EnvironmentaJ Quality

Agriculture

Economic Development Peace & Security

level of Population

Actions Economic Cooperation institutional/Legal Changes Economic Incentives Sustainable Agricufture Improved Governance Management Capabilities Education

Urban Planning and Renewal instilutionai/LegaJ Changes

Economic Incentives

Education

Energy Policies

Management Capabilities Natural Resource accounting Conservation policies ReQfcling Agricultural policies/practice Education Self-determination Rights imoroved Governance Indus^ Policies Agricultural Policies Economic incentives Energy Policies Improved Goverancs

integrate En^ronment wnth Natural Resources Economy Equity & Social Justice

Agriculture Energy

Ethics a Values

Strengthen Cooperation Peace & Security Environmental Quality Development

Chapter 3

Establishing the Process

The United States has been slow to adopt the concept of sustainable development. 1 Only at a few local levels have groups begun to discuss the possibilities of linking the

environment with economics and social equity. Since the state's powers supersede most local activities, the focus must expand to the state level in order for sustainable

development to be integrated in policies and programs that result in wide-spread and

long-term effects.

Many countries, especially those in Western Europe, have developed and implemented policies and practices that are built on the foundation of sustainable development. Many of these countries used the model and processes outlined by the Bruntland Commission.

Although the political structure of these countries vary, the process used to develop their

sustainable programs contained many similarities.

The successful operations of these countries are built on the foundation of a well organized and cooperative structure with a well defined management and planning process. I began to see a pattern in the process of planning a sustainable strategy from my interviews with people involved in the implementation of sustainable development, and from literature on various models in this field. From this pattern, I chose three models to illustrate the planning processes, each at a different level: the Bruntland Commission as an international

level, Canada's British Columbia Round Table representing a sub-national level, and the

S.E.E.D. Conference in Roanoke, Virginia operating at a local level. From these

frameworks common denominators were established relating to the organizational

structures, the implementation processes, and the general management and planning

factors.

Establishing sustainable development in the United States will be no easy task. The

interrelations of federal, state and local governments needs to be evaluated in order to

determine levels of specific responsibilities and decision-making processes. The interaction

of governmental structures best suited for sustainable development will not be covered in

depth in this report; that warrants additional research outside the scope of this analysis.

The analysis of agency structures and administrative procedures, both within and between

agencies, is important to understand before policy recommendations are made. I strongly

recommend that such research be completed before a comprehensive state plan for

sustainable development is developed.

Highlights of the Bruntland Commission

In December 1983, the United Nations established an independent commission to address

"a global agenda for change." 2 The commission was chaired by Gro Harlem Bruntland of

Norway, and is often referred to as the Bruntland Commission. Through a series of

deliberations in five continents, the commission heard testimony of people from all walks

of life. The Commission's agenda consisted of four issues:

- long-term environmental strategies for sustainable development by the year 2000,

- ways that greater cooperation for environmental concerns could be established

among countries,

- ways and means by which the interrelationship of the environment, social and

cultural resources, and economic development could be achieved, and

- methods to help define shared perceptions of long-term environmental issues and

appropriate efforts to successfully deal with them. 3

2 The World Commission on Environment and Development. Our

Common Future. Oxford University Press, Oxford, 1987. p.ix

The central theme that developed from this was that the current trend of development was leaving increasing numbers of people poor, while degrading the environment at the same time. Realizing that the population will double within the next century, the question of whether or not the environment can handle this growth with the existing pattern was unclear. As the commission states, "We came to see that a new development path was required, one that sustained human progress not just in a few places for a few years, but for the entire planet into the distant future. Thus 'sustainable development' becomes a goal

not just for 'developing' nations, but for industrial ones as well." 4

In order to accomplish a task as large as the Bruntland Commission's, a strategy

framework was put in place. The establishment of the commission itself was first on the agenda. The Commission functioned as an independent body which gave it strength, flexibility, and credibility. It's independence allowed it to address any issue it found critical, solicit any advice, and formulate recommendations free from political bias. The Commission itself set the standard for the process it so frequently and feverishly

recommended - it was inter-disciplinary. The membership was comprised of developing and developed countries; economic, environmental, and social equity areas; and from government, private, and academic sectors.

During its first meeting in Geneva, the Commission established its mandate. This mandate covered the strategies, the key issues, the workplan, and the timetable. It selected eight key issue areas for analysis:

- Perspectives on Population, environment and sustainable development. -Energy,

-Industry,

- Food security and agriculture and forestry,

- Human settlements and urbanization,

- International economic relations, - Decision-support systems, and - International cooperation. 5

The strategy also addressed the way in which the analysis would be carried out. The

Commission decided its process would be open, participatory and visible in order to

receive the broadest range of views and advice. To do this, it would hold meetings all

around the world and get a first hand view of issues in each region. In these meetings

government representatives, scientists, research staff, industrialists, Non-government

organizations, and the general public expressed their concerns on common issues.

Special advisory boards consisting of field experts were appointed to assist key areas in

enhancing their information base. During its course of work, the Commission also

engaged experts from research institutions, academic centers and private enterprises.

These studies and reports provided an invaluable base for final recommendations.

The final recommendations were compiled in the report, Our Common Future. The recommendations included policy alternatives as well as institutional and organizational

structures that would manage these changes. It looked at issues from a local to a global

perspective and tied together the underlying themes throughout the world. The

recommendations suggested the actions required, the responsible and impacted parties, the

expected benefits or consequences, and the timing to meet each expectation.

The British Columbia Model

Canada has been highly involved in sustainable development since the mid 1980's. In an

interview with Dr. Edward Manning of Canada's Sustainable Development Research

Division, he summarized the Canadian involvement since the beginning of the Bruntland

Commission. He emphasized the support of key national and provincial leaders which became central to the success of the Canadian program on sustainable development. National studies in parallel with the Bruntland Commission, and the major representation across the varying boards in the UN Commission highlighted Canada's commitment. In

1987, the Canadian government published its own national version of Our Common Future , the "Report on the National Task Force on Environment and Economy." One of the recommendations was to form Provincial-level Round Tables to implement sustainable development on a region or sub-national level. 6

In evaluating the sustainable development strategies and processes used by Canada, the Province of British Columbia was chosen based on the progress it had made and

similarities to many regional areas of the United States. Issues such as highly populated urban centers, economic sectors dependent on historical or present resource bases, rural communities supported by agriculture, and natural resource practices are among the concerns faced by British Columbia.

The British Columbia model has been well documented with background and theme papers, as well as proceedings from various meetings. In interviews with Rick Wilson of the British Columbia Round Table, he detailed the process used in establishing committees,

holding local round tables, and compiling the input and data for documents and policy

recommendations. These conversations were perhaps the most valuable information for assessing B.C.'s process, because they candidly pointed out the shortcomings as well as the strengths.

In January 1990, British Columbia began implementing a sustainable development strategy. A formal Round Table was founded on the previous works at the national level, the

Bruntland Commission's findings, and other studies. As a planning process, the British Columbia Round Table established a procedure that progressed from a horizontal 6 "Report of the National Task Force on Environment and Economy" A report submitted to The Canadian Council of Resource and Environment Ministers, September 24, 1987.

(comprehensive) framework in Phase I, to vertical (specialized) framework of Phase II,

back to a horizontal process in Phase III, that ties together previous works.

Phase I

The first step in this process established the members of the Round Table. Support and

commitment of key Provincial leaders was central to the formation of the Round Table. Simulating the Bruntland Commission and their adjunct committees, the British Columbia Round Table on the Environment and the Economy consists of a broad based representation

from all walks of life. People from government, industry, environmental groups, social service programs, and local communities compromised the 32 member committee. Provincial Round Tables have found several critical factors from their experience in

incorporating sustainable development concepts around Canada. They concluded that it is

advantageous to incorporate private, public, and non-profit organizations. Whenever

possible, they involved the youth sector of the population, realizing their critical role in the future. And most important to the process was the public participation.

The Provincial Round Table identified principles and strategies for sustainable development based on the work of the Bruntland Commission, the Canadian National Task Force in Sustainable Development and others. Linking the provincial level into the national scope, the Round Table identified critical factors that their area needed in order to obtain a

sustainable Province.

A strategy, or a set of process steps to managed this implementation, was formulated by the British Columbia Round Table. This strategy, like many strategic planning processes, contains basic steps for the identification of action items and the elements that each should contain. This fundamental formula can be illustrated in the following diagram: 7

Ecological

Limitatiotts

/

Environmental Values

\

Economic

Viability

Sustainable

Community

Social

Equity

B.C. Round Table on the Environment and the Economy

The British Columbia Round Table formulated key questions to help them develop the

principles for sustainable development. These questions took the fundamentals of

sustainable development and applied them to the current and future cortditions of the

region. Some of these questions included:

How do we weigh present benefits of development against the conservation and

protection of the environment ? , .;

Are our current economic activities sustainable ?

What environmental consequences will we accept in exchange for economic gains ?

To what extent is the health of our economy tied to the health of our environment ?

What are the quality standards of the environment that will enable future generations

to meet their needs ?

What are our responsibilities to other species and ecosystems ?

What are the environmental priorities for British Columbia ?

ͣ

• '^

Since certainty in science is hard to achieve, what level of risk are we"^ willing tO/

accept? * ; ' f - ...~~ - ..

environment ?

- How much should sustainability be the overriding factor in decision-making ? - How do we build on compatibilities to avoid conflicts among sectors and interest

groups ?

- What role should government play in environmental, economic, and social planning

in areas such as land use, population growth, and industrial development ? - How do we relate decisions at the local and provincial level to national and global

concerns ? 8

From evaluating these and other questions, the Round Table formulated a set of six principles for the foundation of sustainable development in British Columbia. These principles guided the efforts of all committees and sub-committees by providing a set of objectives for all decision-making. The principles adopted in British Columbia include:

1) Limiting our impact on the living world to stay within its carrying capacity. 2) Preserving and protecting the environment.

3) Holding to a minimum the depletion of nonrenewable resources.

4) Promoting long-term economic development that increases the benefits from a given stock of resources without drawing down on our stocks of environmental

assets.

5) Aiming for a fair distribution of benefits and the costs of resource use and environmental protection.

6) Promoting values that support sustainability. 9

Phase II

The next step was to assess the current status of British Columbia's environmental, social and economic factors such as energy, forestry, agriculture, tourism, mining, and others.

8 British Columbia Round Table on the Environment and the

Economy, "A Better Way"; A Theme Report for the Provencial

Each sector included a set of evaluation questions and measurement criteria to determine the existing health of the area such as:

- the environmental quality of the land, air, water, and other natural resources, - the quantity and availability of natural resources and their rate of renewal compared

to their rate of depletion. - the criteria for land use, - the health of ecosystems,

- the economic health of the region, and the distribution of wealth,

- the types of industry and the technology and resources required to maintain them, - the types of energy available and their supply and demand relationship,

- the infrastructure and transportation plans involved in community development, and - the availability and quality of social services such as health care, child and parental

care, education, housing, and recreation.

These questions evaluated the current procedures including the way in which existing measures capture sustainable elements, the interrelation and balance of areas, the priorities of each area analyzed, and the tradeoffs and impacts resulting from the methodologies being applied. Background papers on these evaluations were compiled and used as

informational and educational tools. 10

Sustainable indicators to measure the progress of each sector were devised after the assessment was completed. These indicators are key to not only establishing the priorities of the cunent issues and problems, but in monitoring the future.

Environmental

Air Quality Index Water Quality Species Diversity

Wilderness and Natural Habitat Area

10 "Sustainable Communities," "Sustainable Development and Economic Tools," "Sustainable Land and Water Use," and

Noise Levels

Per Capita Waste Levels Dissolved Oxygen

Economic

Employment rate Average Wage Per Capita Debt

Growth Rate

Energy Consumption per Capita Diversity of Regional Economics

Social

Affordable Housing

Public Health

Education and Skill Levels

Public Participation and Assess to Information Cultural Activity and Heritage

Food Banks

Social Stress Index

Consideration of options and potential solutions followed the assessment. In order to manage the breadth of options, sub-committees were formed to concentrate on separate issue areas. Each subcommittee, like the Round Table Committee, was comprised of inter¬

disciplinary members. The local round tables used an open forum method similar to the

Bruntland Commission to gather regional information. These round tables addressed local issues and tied them into the provincial strategy.

Phase in

Currently, the B.C. Round Table is beginning their initial stages of this final phase. Here they will pull together the sectorial work of Phase II into a comprehensive policy strategy for the Province. This strategy will attempt to tie together the economy, the environment, and social goals into one plan. By utilizing the principles defined in the initial stage, the Round Table hopes to establish a protocol by which decision-making bodies will abide.

Sustainable Economic and Environmental Development ("SEED) Conference

In the spring of 1990, in Roanoke Virginia, a local sustainable development coalition was formed to prioritize and plan action to protect the environment while finding ways to stimulate economic development. Sponsored by local and national coalitions, the conference sought to bring global issues to the local level. They sought to educate and inform the public that issues of the environment and economics were interdependent, and not a choice of one versus another. The four sponsors of this local strategy followed the lead of the other sustainable development groups by establishing a cross-sectional steering committee or coalition. By using a cross-sectional approach counterproductive outcomes and conflicts from unequal representation could be avoided.

The coalition divided the sustainable development process into six major issue areas: energy, waste management, air quality, land use, water quality, and biodiversity. A local region-wide survey was conducted to provide perspectives and opinions to assist in

developing a pro-active citizen participation program to deal with the linkage of the

environment with economics. The survey covered nine jurisdictions; six counties and three

cities. Follow-up to the survey included at least three personal interviews in each issue

included in the issue area interviews, with additional interviews of civic and special interest groups where it was deemed appropriate. The outcome of the survey and interviews served to compile facts and opinions on selected environmental issues, to prioritize regional

responses, and to inventory the organizations and individuals that can best address these

issues for the region. 11 #

The steering committee used the results from the survey to establish the framework of their sustainable principles. A conference or town meeting was planned to solicit input on recommendations and concerns relating to the six issue areas and other related topics. Participants at the conference included local, state and national government representatives, industrialists, non-governmental organizations, citizens, and most importantly youth. Panels used during the conference consisted of perspectives from sectors such as health care, recreation, government, education, youth involvement, and industry. The goal of the town meeting according to Donald Lesh, president of Global Tomorrow Coalition, and cosponsor of the event, was "to bring together a broad cross-section of people to talk about better ways to make decisions about a global tomorrow on the local level in terms of environmental, development and resource use." 12

The structure of the town meeting first focused on setting a common vision of sustainable development by providing various perspectives with common themes. Then the conference broke into issue area groups to develop recommendations and priorities. The

recommendations from each of these groups was formulated into task forces to carrying out the recommendations. Semi-annual meeting are held to assess the progress of the

recommendations.

The S.E.E.D. Committee contributes the majority of the coalition's success to public participation. Public participation enabled the conference and its participants to act locally to preserve the environment and at the same time generate healthy economic growth.

11 Proceedings fromthe "SEED" Environmental Conference, October 5-6, Roanoke Virginia.

Common Denominators

Independent of the social-political level each one of these examples represented, there are

common elements to their strategies. Each strategy considers the elements that each have

contributed to the success of their achievements, and the elements they view necessary for

implementation.

In each analysis, sustainable development is a process that relies upon linking previously

fragmented activities and research. Different types of organizational mechanisms can be

used in developing strategies, collecting data, and implementing action plans. Each

mechanism, whether formal or informal in nature, contains the following:

Key leadership commitment. Each process began with the top support and

commitment required to carry out the functions needed, whether the Secretary-General of the UN, key cabinet leaders of the Provincial Parliament, or local

government and communities leaders.

Private-sector and broad-based participation. The process of developing sustainable development strategies or formulating policy recommendations is not done in

isolated government agencies. A broad-based representation of all those directly and indirectly impacted by potential decisions should be included. Consensus is the decision-making process practiced in sustainable development. Consensus allows an equitable voice from all those represented and minimizes conflicts that arise from

a majority voting procedure.

Public and media acceptance of the process, the success of sustainable development

eventually rests within the -lands of the community. Public acceptance of these

practices will center around activities that inform and educate people in an unbiased

manner. Timely and visible methods in the form of media coverage, surveys, town

meetings, public hearings, or published reports are often used to disseminate information. In each of the three processes analyzed, public participation

Focus on issues related to opportunities in key issue areas. Each process looked at

the major issue areas of sustainable development and prioritized them in terms of

immediate attention. Current trends which are causing irreversible damage are

considered most critical, while low impact activities received fewer resources.

Periodic updating. Periodic updating is the most imperative step next to leadership

commitment. Sustainable development is a dynamic process: the resources,

population, and conditions of an area constantly change, affecting the impact of

activities. These impacts can be monitored through indicators that will identify

policies that should be modified to meet the changing status. Policies should

contain provisions for periodic review and modifications in order to maintain a goal

of continuous improvement toward sustainability.

In summary, once the organizational mechanisms such as a steering committee are in place,

the basic principles that direct the planning process must be understood by all of those

involved. Agreement must be reached as to the interdependence of sustainable

development - development that is viewed as a set of interconnected policies and programs

relating to the linkage of economics, the environment, and human resources and equity.

Innovation of policies should focus on long-term investments for the future as well as

short-term improvements for current problems. And finally, recommendations should

encourage self-reliance and build on internal capabilities of the community so as to

Chapter 4

The Sustainable State:

A Look at State Level Sustainable Policies

Over the past decade, states have responded to reduction in federal assistance by initiating a

wide range of environmental and socioeconomic based policies. 1 Large cuts in federal

spending for environmental and social programs in the 1980's, left the states with an

ever-increasing responsibility for the funding and the provision of environmental protection, natural

resource programs, and social services. Although state budgets for environmental programs

have increased, these increases are varied throughout the states, often indicating that those states

with significant pollution spend the least to correct their problems. 2 Now faced with a

balancing act, greater than ever before, states are trying to link the economy and social services

with the environment.

Some states have taken this new-found responsibility and formulated innovative policies.

Whether out of a defense for economic and environmental preservation, or out of a futuristic

vision of long-term benefits, several states have introduced and passed laws that consider the

environment as a critical link to economic and social health. This linkage of economic growth

with sustainable development is what the policies in this chapter will outline.

The policies highlighted in this chapter came from four main sources: The Center for Policy

Alternatives for the majority of the policies, the Institute for Local Self-Reliance for many

policies on hazardous and solid waste, The National Conference of State Legislators for

community development and land use planning, and "Govemings" Magazine. Policies

compiled from the Center for Policy Alternatives were those they had previous determined as

model acts through a series of evaluation criteria including recommendations by state legislators

1 Paul Portney. Public Policy for Environmental Protection.

Resources for the Future, Washington DC, 1990. p. 283

2 Bob Hall, ed. Greeen Index 1991. Institute for Southern

and approval from various advisory boards in the related fields. These policies are pioneers in their interest areas - promoting economic development, protecting the environment, or

establishing fair and equitable services - by initiating new action in areas not previously addressed comprehensively by states, or in geographic regions where such action is needed.

The intent of this chapter is to take innovative policies of various areas and evaluate them as an integrated and interrelated collection. Although most of these policies have been published as "best bets" within their interest area, they have not been evaluated as a complete group relating to sustainable development. The following policies are outlined by the major elements of sustainable development but were assessed by a common criteria that includes:

- The ability of the policy to utilize an inter-agency or interdisciplinary approach to decision-making, implementation, and enforcement.

- The ability for the policy to consider the other elements of sustainable development. For example, does an economic policy consider the impact on the environment and social

welfare ?

- The ability for the policy to incorporate citizen or public participation.

- The ability for the policy to use innovative approaches and incentives to promote sustainable values into root causes, rather than symptomatic behavior.

- The ability for the policy to provide a fair and equitable distribution of expected benefits.

In the evaluation of state policies across the country that fit the sustainable development

definition, eleven states stand out as pacesetters for the nation. These states include California and Oregon on the West Coast; Connecticut, Maine, Massachusetts, New Jersey, New York, and Vermont in the Northeast; Minnesota and Wisconsin in the Great Lakes region; and Iowa in

During the 1980's the rich got richer and the poor got poorer, in terms of income and the ability

to save. 3 The increased income gap has put pressure on many states in terms of their economic

conditions and the utilization of their environmental resources. Creating a more self-reliant

community with opportunity for growth and improvements in the quality of life is critical to

reduce the gap and lessen the number of people affected by poverty.

Some states have used financial services to ensure that spending for community

development is adequately represented in low income and disadvantaged areas. In 1990,

Massachusetts passed HB5425, a reinvestment law aimed to strengthen communities. CRA

credit was given to housing loans in low to moderate income areas. Regional monitoring

boards assured home and business loans to these disadvantaged areas were completed. 4

Maryland's HB512/SB285, also passed in 1990, creates a community reinvestment fund,

managed by private banks with state aid. This fund provides increased investment in

limited-income housing, small businesses, and farms. 5

In the Mid-west, Ohio established a link deposit program with House Bill 697. This

program assists in financing the development of residential facilities for individuals with

development disabilities. 6 Iowa recently passed bill 685 that requires interstate banking

enterprises meet community investment needs and low-income investments if they are to

bank in the state. 7

Affordable housing is another issue that continues to decline. As urban growth continues to

3 Walter H. Carson. A citizen^s Guide to Sustainable

Development. A publication from the Global Tomorrow Coalition,

4 Anne E. Hoskins, ed. "Policy Alternatives on Economic

Initiatives". Center for Policy Alternatives, Washington DC,

increase without relative controls, affordable housing becomes a problem. During the past eight

years the Federal commitment to housing has decreased by 78 %, forcing states to address the

issue of housing 11 million Americans living below the poverty line. 8 Housing efforts are

often thwarted by land use and growth control ordinances, therefore the integration of these two

areas are extremely important for the success of either issue.

A New Jersey plan requires 20% of new housing to be low and moderate income due to

New Jersey's Supreme Court Mt. Laurel decision. Oregon reduced housing costs by as

much as $10,000 by downsizing the single-family lot requirements. This approach also

reduced the costs of public services and facilities. And in Santa Cruz, California, voters

passed an ordinance that requires 15% of all newly-constructed housing to be affordable. 9

Another side to the housing issue is that of homeless families. Currently several states have

loan and emergency programs that help those already homeless and aid families on the verge of

Oklahoma assists homeless regain independence through a no interest revolving loan

program and credit counseling services. Massachusetts offers a 3 step shelter plan that

includes housing, health care, and support services. It begins with emergency shelter,

moves to transitional shelter programs, and then assists people with stabilization.

Connecticut's public act 90-257 is a comprehensive and multi-agency program that utilizes

housing authorities, human resource agencies, and income maintenance agencies to assist

homeless in becoming self-supporting. To provide shelter at low state costs, Portland's

Transitional Housing Demonstration Program in Oregon uses foreclosed properties as

transitional housing, and provides foods and counseling. Other state programs in

Pennsylvania, New Jersey, and New York also provide services for homeless, but tend to

8 Christine Minnehan. "When Worlds Collide: Managing Growth and

Meeting Housing Needs." A paper for the California State Governmnet Intergovernmnetal Affairs Committee. 1990.

9 Ibid.