Regional sustainable development in Sweden

Transcription

1 Regional sustainable development in Sweden Developing methods and processes REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 1

2 Contents Foreword 3 A new policy for regional sustainable development 4 Sustainable development in Sweden 6 Strategy for sustainable regional development 10 Study of regional processes 13 Future challenges 15 The Swedish political and administrative system 16 Contacts, Links 18 ecological economic social Extra copies can be ordered from Swedish EPA, orderphone: , fax: , natur@cm.se ISBN PRINTERS: CM-Gruppen, Stockholm DESIGN: Peter Hönig. PHOTOS: Eva Tedesjö/Pressens Bild, Ulf Nareinus/Windh, Sven Oredson/Megapix, Stig Erik Erikson/Windh, Sunside/Ina Agency, Mauritius/Megapix, Tore Hagman/N, ACE/Windh, Johan Bång. 2 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

3 Foreword Swedish Environmental Protection Agency (EPA) is a central environmental authority under the Swedish Government. Our tasks are to coordinate and drive forward environmental work nationally and internationally. One of the tasks of the Swedish EPA is to act as a partner in efforts to achieve regional growth by providing support in the form of analysis, methods, competence and know-how. NUTEK 1 is the agency with prime responsibility for regional development in Sweden. In publishing this brochure, which presents an overview of the work done in the field of regional sustainable development in Sweden, we wish to share this information with other countries. The brochure is primarily intended for those involved in regional sustainable development at national, regional and local authorities in other countries, as well as the research community and trade and industry. We believe that regional and local partnerships may find the brochure useful. It may also be of interest to experts in the EU administration who deal with regional sustainable development. By way of introduction, an outline is given of some key aspects of Swedish regional development policy, along with a brief summary of Swedish work on sustainable development. This is followed by a presentation of a strategy for regional sustainable growth and development produced in broad cooperation between the EPA and other national and regional agencies and organisations. We also give a brief account of a study on regional processes for sustainable development in three regions. Finally, there is a description of the Swedish political and administrative system. Similar regional sustainable development processes are in progress in many quarters, within and outside the EU. We hope that greater exchange of information will enable us to gain inspiration and learn from each other so that together we can make progress towards regional sustainable development. This brochure was written by Ingrid Hasselsten and Maria Daléus, at the Section for Strategic Environmental Planning, Department of Sustainable Development, Swedish EPA. 1 The Swedish Business Development Agency REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 3

4 A new policy for regional sustainable development P o l i c y 4 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

5 Sweden is a country of wide regional variations; some regions have a good rate of growth, others have structural problems and/or a declining population. As elsewhere in the EU, the regional level in Sweden has become increasingly important. There is a growing awareness that growth and viability are created at local and regional level. Since conditions vary across the country, a large measure of local and regional freedom of action is essential. Facts about Sweden Sweden has just under 8.9 million inhabitants. It has a surface area of 450,000 square kilometres. The average population density is 21 inhabitants per square kilometre, although there are great regional variations. Half the population lives in the three main conurbations: Stockholm, Gothenburg and Malmö. In 2002 the Swedish Government introduced a new regional development policy in its bill 2001/02:4: "A policy for growth and viability throughout Sweden". The bill transformed former regional policy, which focused mainly on supporting the weaker regions of Sweden, into a new policy for sustainable development throughout the country. The new policy emphasises that national growth comprises the sum of growth created in all the regions. The aim is to support greater sectoral integration and regional consideration in various policy areas. Another new feature is that it is clearly emphasised that the overall objective of regional development policy is sustainable development, particular importance being attached to environment, equality of the sexes and integration. Extract from Bill 2001/02:4: "A policy for growth and viability throughout Sweden": "Regional policy is to be transformed into a new policy for sustainable development throughout Sweden." "Promotion of regional sustainable development means prioritising policy solutions that yield synergies between the economic, social and ecological dimensions. It is a question of finding overall solutions that influence the direction of regional development towards greater sustainable development in society." "It is important that social and environmental issues are seen to provide an impetus and potential for growth and development." Regional growth programmes, inspired by the EU Structural Funds programme, form the basis for further work in this field. A growth programme is developed by REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 5

6 a regional partnership. It comprises an analysis of the region's scope for development, a programme with objectives and priorities for growth and a plan for funding, implementing and evaluating the programme. The aim is to support sustainable economic development, create more new companies and help existing companies to expand and create new jobs for women and men. The idea is make better use of and support regional and local initiatives for growth. Trade and industry are also invited to play an active part and influence the design of the growth programmes. The programmes to be implemented must be sustainable from an economic, social and ecological perspective. Programmes are to be guided by the potential for growth in the business and industrial sectors. The regional and local partnerships for growth play an important part and must possess the necessary know-how in the fields of environment, equality of the sexes, integration and diversity. No additional government funding has been allocated to the growth programmes. The aim is to use existing government funding from various budget appropriations creatively and efficiently to promote growth and development. These initiatives will focus on job creation and retraining, trade and industry, education, training and transport policy. The funds allocated for job creation and retraining schemes represent half the total funds so far allocated. The idea is that national policy for regional sustainable development should operate in tandem with EU structural and regional policy as effectively as possible. EU structural funds are also an important policy component. The regional growth programmes serve as a means of coordination. They run for four years, but are followed up and updated at regular intervals. The Government emphasises the importance of viewing the growth programmes as continuous learning process aimed at further development of inter-sectoral cooperation. The idea is gradually to further develop both methods and approach. The second period has recently begun and will run from 2004 to REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

7 Under the Government's new regional development policy, each county has the task of producing an overall strategic statement of objectives, known as a "regional development programme". The programme is intended to serve as an umbrella document for the underlying more operational programmes on specific themes, such as regional growth programmes, infrastructure plans, structural funds and environmental objectives programmes. The regional development programmes should Provide scope for balancing economic, social and environmental aspects Serve as coordinating instruments between the regional and national levels Provide guidance for various types of regional planning The regional development programmes thereby represent a higher level of complexity and aims than previous Swedish development efforts and will require substantial skills and organisational development. There is a great need to develop methods and processes for producing regional development programmes. Preparations are under way for a joint inter-sectoral programme of cooperation between the national and regional levels, involving representatives for economic, social and environmental sustainability. REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 7

8 Sustainable development in Sweden S u s t a i n a b l e 8 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

9 NATIONAL LEVEL Sweden has long worked actively for a better environment. And it was also in this area that efforts to achieve sustainable development started. The Government's legislative programme in 1996 established that Sweden should press for action in this field and be a forerunner in efforts to achieve ecologically sustainable development. The Swedish Parliament adopted 15 environmental quality objectives in Central authorities, ministries and other organisations are responsible for developing interim targets and describing the measures necessary to achieve them within a generation. At regional level county administrative boards are responsible for breaking down the objectives into specific regional environmental objectives and developing strategies to achieve them. Sustainable development is an overall objective of Government policy. According to the Government, development continues to be unsustainable but this trend can be reversed. The Government considers that broad popular involvement and shared responsibility will be needed to create a "green Swedish welfare state". In 2002 the first version of the National Strategy for Sustainable development was enacted (Gov. Bill 2001/02:172). The strategy served two purposes. One was to meet the commitment made by all UN Member States to present a national strategy for sustainable development at the World Summit in Johannesburg The other was to describe the current status of and prospects for sustainable development in Sweden. This was the first time the Government had presented a strategy for sustainable development combining social, economic and environmental priorities in the efforts to move Sweden towards sustainable development. It represents a summary of objectives, strategies and measures that are reflected in the policy being pursued. The strategy of 2002 should be seen as a first step in a more coordinated and systematic approach towards sustainable development. The strategy was revised in April The revised strategy establishes a vision for a future sustainable society based on three premises. The first is that sustainable development in Sweden can only be achieved within the framework of global and regional cooperation. The second is that sustainable development must be integrated in all policy areas. The third premise is that further national efforts will be needed to safeguard the key resources forming the basis for sustainable development in the long term. The strategy REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 9

10 also presents four strategic issues of the future that will be focal points in the Government's policy on sustainable development. Environmentally driven growth and prosperity Good health the most important resource of the future An integrated policy for building a sustainable society Children and youth policy for an ageing society The strategy establishes a vision for a future sustainable society a conceptual foundation and a long-term policy to apply for a generation. The strategy also specifies the instruments and processes needed to implement the change. In addition, the strategy contains eight strategic core areas involving more specific objectives and measures to achieve sustainable development. CORE AREAS 1.The future environment - Efforts in this area aim to assure present and future generations a good living environment and prosperity. These aims are encapsulated in the 15 environmental quality objectives adopted by the Swedish Parliament. 2.Limiting climate change - This core area focuses on restricting greenhouse gases to levels that are sustainable in the long term. 3.Population and public health The major issues in this area are demographic problems, the declining workforce and increasing ill health. 4.Social cohesion, welfare and security The priorities are public involvement, equality of the sexes, integration, discrimination and intolerance, good mental and physical health for children and young people, vital culture and protection from crime. 5.Employment and learning - Highlighting skills development, active labour market policy and creativity as prerequisites for education, training, employment and enterprise. 6.Sustainable economic growth and competitiveness - The importance of a stable socio-economic climate, ie, sound public finances, full employment, sustainable pension systems. Sweden should have a strong business and industrial sector permeated by concern for social and environmental issues. 7.Regional development and regional conditions - Regional growth policy is intended to achieve growth and viability throughout the country. Infrastructure, municipal finances, population trends, education and training are important. Open landscapes, dynamic agriculture, cultural heritage and the cultural environment are also essential if a region is to remain attractive. 8.Building a sustainable society - The design of built-up areas, infrastructure, transport systems, energy use and new information technology are essential factors in economic, social and environmental development in urban and rural areas alike. 10 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

11 In recent years several Government bills have highlighted sustainable development and the importance of adopting a more overall approach and increased policy coordination. County administrative boards have been asked to use their overall coordinating role as regional environmental agencies as a basis for working more closely with other regional authorities and bodies in their efforts to achieve the environmental objectives. One aim of this is to make better use of the potential for coordinating action to stimulate growth and employment with efforts to achieve the environmental quality objectives decided by Parliament. The Government has also stressed the importance of incorporating environmental objectives when formulating regional development programmes. The Swedish EPA is responsible for the ecological dimension of sustainable development and cooperates with other agencies and organisations at national, regional and local level to support sustainable development, see below. REGIONAL LEVEL As mentioned earlier, the overall aim of regional development policy is sustainable development. Regional growth programmes are a key tool here. When it evaluated the first period ( ), the Government drew attention to major shortcomings in the areas of environment and equality of the sexes. The Government underlined how important it was that continuing efforts to stimulate growth should focus on environment and equality of the sexes as important forces driving development and growth. The Government therefore earmarked funds for development of methods and tools for greater integration of environment and equality of the sexes in efforts to stimulate growth. The Swedish EPA was instructed to work with three counties (Skåne, Dalarna and Västerbotten) on a pilot project to develop methods and tools for increased integration of environmental issues. The project resulted in a report on environmental integration containing a draft strategy and methods of using the environment to drive growth and development. The report also contains examples of best practice in the form of projects yielding synergies by combining environment and growth. At the same time, three other "pilot" counties (Blekinge, Västra Götaland and Jämtland) were charged with the task of developing methods for greater integration of equality of the sexes. This project also resulted in a methods handbook. EU structural funds, which are intended to increase economic and social unity between member states, reduce regional imbalances and differences in economic development, are also a key element in Swedish regional development policy. Sweden has received approximately 2 billion euros from the structural funds for the period The Swedish EPA has been given the role of ensuring that, as far as possible, the money is used for the benefit of the environment. In the Swedish EPA's view, the regulations for each fund, in combination with the general regulations governing structural funds, provide a fairly good basis for pursuing environmental interests when deploying structural funds nationally. Hence, the regulations allow scope for ensuring that priority is given to environmental issues, which will in turn further sustainable development. Swedish EPA experience is that a substantial number of environmental issues are incorporated in the collective REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 11

12 programme documents and programme supplements for the various areas. Natural assets and cultural heritage are often highlighted here as a resource to be made good use of in the growth context. These assets are seen as a prerequisite for a good living environment. But a recent "half-time" evaluation of the programme has revealed that the impact of the environmental dimension is not being felt right down to project level. It therefore needs to be further emphasised that sustainable development must permeate all stages of utilisation of the structural funds, including the implementation phase. Swedish administration is sharply divided into sectors. This is perceived as a problem at regional level, where the various policy areas must be reconciled. In 2002, to increase inter-sectoral cooperation, the Government instructed 27 national agencies to develop methods and processes for increased inter-sectoral cooperation in the field of regional development. NUTEK was given responsibility for coordinating this process. In this context, the Swedish EPA conducted a joint regional sustainable development project with 27 other agencies and organisations at national and regional level. The aim of the project was to create a forum for a dialogue on sustainability, synergies and conflicting objectives. The project led to a report on strategies and methods for integrating sustainability with efforts to achieve growth. This was a development of the methodology and strategy development under the "pilot counties" project on integration of environmental issues. An outline of the strategy is presented in the next chapter. The project resulted in a further report containing examples of regional processes for sustainable development in three counties: Dalarna, Västra Götaland and Södermanland. A brief summary is presented in the section entitled "Experience of processes". More information about the project and the reports is available at the Swedish EPA website: LOCAL LEVEL Sustainable development at local level has mainly been manifested in the form of progress made under Agenda 21. The Agenda 21 document gave Swedish municipalities a key role in making progress towards sustainable development. However, they are free to adopt the approach best suited to local conditions and wishes. The approach to Agenda 21 therefore varies considerably from one municipality to another, and varying degrees of progress have also been made. The Swedish approach to Agenda 21 is unique in several ways. All Swedish municipalities have been engaged in Agenda 21 in one way or another. According to a study published in May 2002, just over 70 per cent of municipal councils have adopted a local plan, up from 56 per cent in However, there are signs that the level of Agenda 21 activity is declining in several municipalities. In the early years, Swedish Agenda 21 concerned fairly basic environmental issues such as composting and sorting of household waste at source, whereas the sustainability dimension only had a minor part to play in key decisions concerning municipal development. The environmental dimension still predominates over the other two dimensions, but a somewhat broader perspective has been adopted over the last few years. Examples of new issues are public health, culture and integration. 12 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

13 Under the Swedish constitution, municipalities have local responsibility for ensuring a good living environment. This means that they also have overall responsibility for achieving national environmental and public health objectives. County administrative boards are under a duty to work with municipalities to produce background data for local objectives and action programmes. Municipal efforts to gain support for, develop and implement measures to achieve environmental objectives in a dialogue with stakeholders are central if success is to be achieved. To support the transition to sustainable development in Swedish municipalities, the Government decided in 1996 to allocate funding for Local Investment Programmes (LIPs). This funding was replaced in 2002 by Klimp the Climate Investment Programme, which is more specifically intended to reduce emissions of greenhouse gases. In some regions municipalities take an active part in efforts to achieve growth via networks of local partnerships participating in development of regional growth programmes. REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 13

14 Strategy for sustainable regional development S t r a t e g y 14 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

15 This section outlines a proposed strategy for integrating sustainability with efforts to stimulate regional growth. The material is based on regional experience of work on stimulating growth over the past few years. Evaluations have shown that, notwithstanding the express wishes of the Government, it is difficult in practice to integrate sustainability in these contexts. A new approach will be needed so that sustainability can play a central role. This new approach will require greater cooperation between sectors, an overall approach spanning all sectors, skills development and inviting new actors to take part in the process. A long-term learning process is entailed, in which it will be necessary to have the courage to break with outdated patterns of thought and behaviour, to cross-sectoral boundaries and to break new ground. OBSTACLES AND KEYS TO INTEGRATION During cooperation at regional level, the Swedish EPA has identified a number of factors constituting obstacles on the route to integrating sustainability with efforts to stimulate growth. Similarly, a number of keys to success have also been identified. General obstacles include attitude problems and a lack of knowledge about ways in which sustainable development and regional growth can work together, territoriality and rivalry over responsibility for issues, a shortage of time and resources, a lack of developed methods, criteria and indicators, ambiguous directives in which sustainability has not been highlighted with sufficient clarity, and the fact that sustainability often takes second place to the main work being done by a given environmental group. It has then been difficult to ensure that due account is taken of sustainability in the groups responsible for taking key decisions. Sustainability is often considered too late and then becomes a restrictive factor instead of providing a positive impetus for growth. Examples of keys to success include directives and the requirement that the sustainability perspective should permeate efforts to stimulate growth, management support and commitment, well-developed inter-sectoral cooperation between representatives of social and environmental sustainability, and also regional development, providing greater knowledge of the way the various aspects of sustainability can work in concert to create growth. REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 15

16 STRATEGIC GUIDELINES A number of proposals are given below showing ways in which sustainability can be integrated with efforts to stimulate growth. The proposals are based on an analysis of obstacles and keys to successful integration and are the result of the joint efforts of a large number of central agencies and regional actors. MANAGEMENT, SUPPORT AND CONSENSUS Clear requirements that sustainability should be taken into account must permeate all work in this field. Clear and robust support from the management of organisations responsible for growth is essential if growth programmes are to reflect the sustainability dimension. It is essential to gain the support of politicians and strategically important actors and report back to them on a regular basis. COMMON VISION AND INVOLVEMENT Develop a common vision of a sustainable future for women and men in the county. Create involvement and a common view of the implications of sustainable development in various fields of activity in the county. Identify non-sustainable trends, potentially conflicting objectives, as well as the know-how and resource base and the driving forces that may form the basis for sustainable development in the county. Beware of polarisation between differing "competence cultures", of resistance that may be due to a lack of interest or ignorance and that may take the form of territoriality and rivalry. A PRO-ACTIVE APPROACH Incorporate an overall approach and sustainability from the outset in efforts to stimulate growth. Base the approach on material reflecting social, environmental and economic factors and ensure that the material is actually put to proper use in all aspects of the work. This will allow environmental and social factors to offer potential for growth, and will reduce the risk of them having an inhibitory effect at the end. Identify synergies and highlight positive scenarios and best practice as regards the way social and environmental considerations can act as powerful growth factors in trade and industry, benefiting men and women alike. Many potential conflicts between objectives can be avoided by focusing on finding synergies from the outset. Where objectives do conflict, the issue may have to be resolved politically so that the project does not lose momentum. 16 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

17 APPROACH AND ORGANISATION Integrate skills and know-how in the field of social and environmental sustainability in the organisation for regional growth and development. Achieve an equal balance between the sexes in the groups. Improve the dialogue and cooperation between the regional development function and functions for social issues, environment and physical planning within and between the county administrative board/regional development council. Allocate necessary time and resources. Broaden the partnerships. Involve companies, particularly those with a proactive approach to sustainable development. Make it possible for men and women at small and medium-sized companies to take part in the process. Involve universities and other educational institutions, cultural institutions and artists to stimulate creativity in the process. Involve local authorities, local stakeholders, trade associations, local Agenda 21 representatives etc in local partnerships. ACHIEVING GROWTH A LEARNING PROCESS Education and training for all. Enhanced skills and know-how are the key to insight and motivation. Resources should therefore be continuously allocated to broad education and training on the theme of sustainable development and sustainable growth. Focus on broad information campaigns aimed at stakeholders, eg, at municipal meetings with trade and industry representatives. Improve information and the support given to various stakeholders in relation to sustainable development. Raise standards for data on the environment, equality of the sexes and integration submitted with funding applications. Develop tools for sustainability in programmes, implementation of measures and monitoring of results. Develop criteria, indicators and checklists, for example. The above are strategic guidelines intended to ease the process of integrating sustainability aspects with efforts to achieve regional development. We believe that work on regional growth programmes, structural fund programmes and regional development programmes can contribute to sustainable development. It is a question of prioritising solutions favourable to social, economic and environmental development, of finding overall solutions that guide development in the region towards greater sustainability. The most important aspect of the strategy is to adopt a pro-active and open attitude to facilitate the shared learning process. REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 17

18 Study of regional processes R e g i o n a l Sustainable development is an overall objective of the regional development process. Goal-oriented processes are under way in many areas of Sweden to put the concept of sustainable development into practice regionally. Conditions in all regions vary, as does the regional approach. In 2003 the Swedish EPA, a number of regional representatives and a research institution conducted a joint study into regional processes for sustainable development. EXPERIENCE FROM THREE REGIONS Three regions described their own process to achieve sustainable development in the region. One researcher 1 from Nordregio 2 then made some reflections in a separate chapter on the basis of the processes described. A number of observations could be made. CONDITIONS AND CONTEXT The three processes described vary widely, having started on the basis of differing conditions and in a different direction. In all probability, this individuality is also characteristic of other regional processes. PREHISTORY, MANAGEMENT SUPPORT AND KEY PERSONNEL All three regions describe a "prehistory" as an important positive basis for the considerable impact their efforts have today. That prehistory often began as commitment to the environment in the 1990s. That commitment has subsequently broadened to encompass dimensions other than sustainable development. In 18 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

19 addition to their prehistory, all the regions emphasise the important role played by a strong, goal-oriented management team, and the fact that this has been reflected in one or more documents. Another factor identified as important is some form of key individual, a source of inspiration, torchbearer, driving force or the like, able to involve and inspire, and to keep interest in the project alive over time. DEFINITION OF SUSTAINABLE DEVELOPMENT A further key element is the need to formulate a common view of sustainable development. This process has, in itself, been an important mutual learning process, which has laid down common values for sustainable development in the region. CHANGE AND TIME All three regions say that it takes time and a great deal of effort to begin to work towards a new concept such as sustainable development. There are many reasons why change takes time. Changing an arena and its actors, changing deep-rooted perspectives, finding ways of formulating and solving problems and organising oneself takes time. The accounts given by the regions show that much remains to be learnt. Differences in professional perspectives become plainly evident in projects and actors in the regions may also feel as though they are speaking different languages. In a process of change to achieve sustainable development it is important to find a common language and to build new perspectives encompassing several sectors. THE RELATIONSHIP BETWEEN THE NATIONAL AND REGIONAL LEVELS There is a broad consensus in the regions to the effect that the regions and central government need to develop their relationships to work towards sustainable development. Regional actors feel that central government is more sharply divided into sectors than the regional level. The regions are expected to work on sustainable development across sectoral boundaries, which are made more difficult when they deal with the national level, which they perceive to be heavily sectorised. The regions have interpreted sustainable development somewhat differently. However, one common feature of their interpretation is that sustainable development is more than the mere sum of everything the actors usually do anyway. It is not enough to plod on along three parallel tracks; there are no guarantees that the overall result will be sustainable even if good things are done individually in each dimension. Focus is needed, having the courage to select and reject, and being able to understand the relationship between the various aspects of sustainable development. Herein lies the potential of the concept to contribute to innovation. But this process of change takes time. Yet no one has said that it takes too much time. On the contrary, emphasis is frequently placed on the positive and often tangible effects of the work being done, even though there may be twists and turns along the way. 1 Tuija Hilding-Rydevik 2 A centre for research, education and documentation on spatial development, established by the Nordic Council of Ministers. REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 19

20 Future challenges F u t u r e 20 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

21 An interim evaluation of the new regional growth programmes has shown that more regions have now integrated the environmental dimension in a more farreaching and considered way. On the other hand, equality of the sexes, integration and diversity have not been sufficiently analysed. Generally, it may be said that much remains to be done to ensure that environmental aspects as well as equality and integration are fully incorporated in regional growth programmes. Integrating environment and sustainability with regional growth programmes and regional development programmes involves a long process of change. It involves bringing new issues into existing arenas with established structures. It involves breaking patterns and traditions, bridging the gap between cultures, inviting new actors to take part and creating new meeting places. It is also about creating the right conditions for developing skills and know-how, learning processes and new approaches. The Swedish EPA will continue to participate in and support efforts to improve methods, analyses and skills in the field of sustainable growth and development. The area with highest priority in sustainable regional development are the efforts being made to improve methods and processes for integrating sustainability in regional development programmes. It would be desirable if a common approach to sustainability could eventually be established, permeating all levels, from the EU to regional and local level. Regional development programmes, which are intended to serve as an umbrella document for a number of specific implementation programmes at regional level, such as regional growth programmes, regional infrastructure programmes and the regional environmental objective programmes, could then serve as regional sustainability strategies, linked to the national sustainability strategy as well as the EU sustainability strategy. This brochure reflects the Swedish Environmental Protection Agency's wish to share its experience of efforts to achieve regional sustainable development with others dealing with similar issues in other countries and to create a dialogue. We welcome any response of whatever kind, as well as comments, discussions and details of similar or divergent experience. REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 21

22 The Swedish political and administrative system S y s t e m 22 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

23 Sweden has three democratically elected levels of government: the national Parliament, county councils at regional level and municipalities at local level. The Swedish Parliament is our legislative assembly and is elected every four years. Parliament chooses the Prime Minister and the Prime Minister appoints the Government. Elected bodies, known as municipal and county council executives, run municipalities and county councils. They comprise politicians who are directly elected every four years. Elections take place at the same time as the general election. County councils and municipalities have their own powers to levy taxes and their own decision making powers. At regional level the state is represented by county administrative boards, which may be said to extend the reach of the central government throughout the country. Sweden has been a member of the European Union since A comprehensive review of the entire public sector organisation is currently in progress. The review commission's task is to identify, elucidate and perform a comprehensive analysis of the changes in society that affect and could change the structure and the division of responsibilities in the relationship between central government, county councils and municipalities. The commission will also analyse the relationship between central government and its administrative agencies. The review is intended to lead to proposals for necessary changes in the structure of Swedish public administration. LOCAL LEVEL MUNICIPALITIES Sweden has a markedly decentralised form of government in which municipalities have wide powers of self-determination and responsibility for local services such as primary and secondary schools, preschool, care of the elderly, roads, water, sewage and energy. Municipalities also grant various permits such as planning permission and liquor licenses, and play an active role in matters affecting business development, tourism and culture in the area. The highest decision-making body in the municipality is the Municipal Council, made up of democratically elected local politicians. There are 290 municipalities in Sweden. REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 23

24 REGIONAL LEVEL COUNTY COUNCILS County councils are responsible for general services that would be too costly for a single municipality. There are 18 county councils, two regional autonomous bodies, and one municipality with no county council (Gotland). Their prime responsibility is for all healthcare in the county. County councils are also responsible for the planning of Swedish dental care and share responsibility with the municipalities for county public transport. County councils are also actively engaged in regional growth and development and support commerce, tourism and culture in the region. The highest decision-making body in the region is the County Council Executive, comprising democratically elected politicians. COUNTY ADMINISTRATIVE BOARDS Sweden is divided into 21 counties, each of which has a county administrative board and a county governor. Sweden's county administrative boards represent the Swedish Parliament and central government at regional level. It is their responsibility to ensure that decisions taken by the Swedish Parliament and central government are implemented in the manner intended. A county governor, appointed by the Government, heads the county administrative boards. The Government also appoints county administrative board members. County administrative boards have a wide range of expertise at their disposal, and use these resources for the benefit of their inhabitants and to safeguard their interests. The broad range of activities at county administrative boards includes everything from issuing driving licences and exercising regulatory authority in the environmental field to regional economic issues. County administrative boards are also responsible for coordinating work relating to EU structural funds. REGIONAL DEVELOPMENT COUNCILS The division of responsibility for regional development is continuously debated in Sweden. Pilot projects for extended regional autonomy were launched in four counties in 1997: four regional councils were started. The main aim of these projects was to improve efficiency and achieve greater democratic participation in regional development. The pilot scheme was evaluated after a few years and Parliament decided in January 2002 that responsibility for some regional development issues could be transferred from the county administrative board to a regional development council in counties where all municipalities agree. In 2003 it was agreed in seven counties that regional development councils would be established to assume overall responsibility for regional development. Another was added in The duties taken over by regional development councils include formulating programmes for development in the county (regional development programmes), coordinating county development, deciding on the allocation of some central government funding for regional development (regional growth programmes), setting priorities for infrastructure and receiving and preparing applications for structural funds. The pilot projects with regional autonomous councils will continue until 2006 in two counties. 24 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

25 NATIONAL LEVEL GOVERNMENT AGENCIES Sweden has some 300 central committees, boards, agencies, public authorities and state-owned companies accountable to the Government and answerable to various ministries. Their duties are to implement the decisions of Parliament and the Government. The government agencies are independent. This means that they are responsible for their actions, but act according to guidelines issued by the Government. THE GOVERNMENT The Government runs Sweden and is led by the Prime Minister, who coordinates the Government s work and has overall responsibility for government policy. Parliament appoints the Prime Minister by approving the nomination put before the house by the Speaker. The Government is composed of ministers appointed by the Prime Minister. The ministries are largely engaged in preparing business for the Government, eg, in the form of draft legislation (government bills). When the Government has finished working on a bill, it is put before Parliament, which votes on it. When Parliament has passed legislation or decided an issue, it is up to the Government to implement that decision. The Government also represents Sweden in the European Union s Council of Ministers by participating in Council meetings. The Government also pursues issues it believes to be important in the various bodies of the Council. PARLIAMENT Parliament enacts legislation and decides on the state s income (taxes) and expenditure. It examines the work of the Government and of authorities and decides on foreign policy. Members of Parliament are elected by secret ballot in a general election held every four years. REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 25

26 Contacts & links Ingrid Hasselsten, Swedish Environmental Protection Agency, Sustainable Development Department, Strategic Environmental Planning Section Maria Daléus, Swedish Environmental Protection Agency, Sustainable Development Department, Strategic Environmental Planning Section LINKS For further information please visit the following websites The Swedish Business Development Agency: Swedish Environmental Protection Agency: Environmental Objectives Council: Ministry of Industry, Employment and Communications: 26 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN

27 ecological economic social REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN 27

28 NV 8176, The Swedish Environmental Protection Agency SE Stockholm Visitors address: Blekholmsterrassen 36 Tel: , fax: natur@naturvardsverket.se Order: tel , fax natur@cm.se Internet: 28 REGIONAL SUSTAINABLE DEVELOPMENT IN SWEDEN