Environmental Management System (EMS) in Swedish governmental agencies

Transcription

1 Environmental Management System (EMS) in Swedish governmental agencies

2 Contents Foreword 3 About our EMS 4 EMS in practice 8 EMS experiences 10 EMS good examples 15 The Swedish political and administrative system 16 Further information 19 Extra copies can be ordered from Swedish EPA, orderphone: , fax: , natur@cm.se ISBN PRINT: CM Gruppen, Stockholm DESIGN: Citat AB. PHOTOS. Page 1: Lucia Kangur, 4: Susanna Blåvarg, 9: Martin Bogren, 10: Johanna Löwenhamn, 15: Bengt af Geijerstam, Bruno Ehrs, Gerry Johansson, 16: Bengt Olof Olsson.

3 Foreword Swedish Environmental Protection Agency (Swedish EPA) is a central environmental authority under the Swedish Government. Our task is to coordinate and drive forward environmental work nationally and internationally. We focus on the ecological dimension of sustainable development and cooperate with other agencies and organizations to support sustainable development. One of the tasks of the Swedish EPA is to guide other government agencies in how to use Environmental Management System (EMS). In publishing this brochure, which presents an overview of the work done in the field of introducing and maintaining EMS in the government agencies in Sweden, we wish to share this information with other countries. The brochure is primarily intended for those involved in using and promoting the use of such systems. It may also be of interest to experts who deal with the ISO standard 14001, EMAS (Eco-Management and Audit Scheme) and other environmental management systems. 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 a more sustainable development. We welcome any response of whatever kind, as well as comments, discussions and details of similar or divergent experience. This brochure was written by Ulrika Hagbarth at the Department for sustainable development, Swedish EPA. FACTS ABOUT SWEDEN: Area: km 2 Population density: 22 inhabitants/km 2 Forest: 54% Highest, Stockholm: 3971 inhabitants/km 2 Mountains: 16% Lowest, Arjeplog: 0.27 inhabitants/km 2 Cultivated land: 8% Lakes and rivers: 9% Average temp: Malmö 0.2 C (Jan), C (Jul) Stockholm 2.8 C (Jan), C (Jul) Kiruna 16.0 C (Jan), C (Jul) Population: 8.1 million 8.9 million 8.9 million Foreign-born inhabitants: 7% 11% 12% Stockholm County population: 1.5 million 1.8 million 1.8 million Average life expectancy: men: 72 years men: 77 years men: 77 years women: 77 years women: 82 years women: 82 years Distribution of Parliament members: 85% men 57% men 55% men 15% women 43% women 45% women Distribution of days of parental allowance for caring for young children 0% men 12 % men 18 % men 100% women 88% women 82% women ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION 3

4 About our EMS Continual improvements 4 ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION

5 EMS can differ somewhat in structure and performance. They can be international standards like ISO and EMAS or they can be of a more elementary character like the one developed for the government agencies in Sweden. This system builds on the ISO standard but with fewer requests for documentation, routines and audits. Instead there is a yearly reporting obligation and much emphasis is placed on indirect aspects, which are considered far more important than the direct impacts on the environment. The Government declared in 1996 its ambition to set a good example by introducing environmental management system (EMS) into government agencies, thereby contributing to sustainable development. The fundamental elements of the Swedish model of an EMS for governmental agencies are similar to the ISO standard, namely the environmental review, which is conducted to identify and prioritise the agency s environmental impact; the environmental policy drawn up; objectives and action plans to implement requisite action and final follow-up and reporting of the result (to the government). The aim is continual improvements. The environmental review has two main aims: to obtain knowledge on how the agency s work has an impact on the environment and to try and find the aspects that entail the greatest environmental impact. Impact may be both direct and indirect. The indirect impact dominates for the majority of agencies. The direct impact dominates more often for producer companies. Examples of indirect environmental aspects are official decisions, grants, training and information, and supervision of compliance with legislation. Common direct aspects are business travel, energy consumption, paper consumption and waste, or for companies: emissions to air and water as well as raw-material consumption and waste management. The environmental review is initiated with a survey to identify which operations conducted by the agency have an environmental impact (e.g. grants to agriculture but not issuing television or liquor licences), and an attempt to quantify the size of this impact. A prioritisation process follows to specify the most significant impacts so that the most urgent action can be taken. The priorities are identified using an evaluation model which may have been worked on or developed at the agency in question. It is preferable to base the evaluation model on defined and clear criteria, because it may be necessary to revise the environmental review after, for example, five years, and ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION 5

6 thereby revise the assessment of what the top priorities are. Another important element in the environmental review is a list of the legislation and regulations that apply to the agency. The environmental review is a fundamental document; a good review may enable many problems to be avoided at a later stage. The environmental policy states the focus of the agency s environmental work. It contains the management's approach to the work (for example, the Swedish EPA shall have a driving and compiling role in the environmental work) and should include the significant environmental aspects that have been identified in the environmental review. To reduce the direct impact this can be written as follows: We shall minimise and prevent the adverse environmental impact caused by our office practices, in particular by minimising the environmental impact of our transports and reducing our energy consumption, our use of resources and our waste. The environmental policy should also contain a commitment to continual improvements. It must be sanctioned by the top management level. The next stage is to formulate environmental objectives. The objectives are to cover the significant environmental aspects identified in the environmental review. Usually both environmental objectives and (more detailed) environmental targets are set. The targets usually apply for one year, whilst the objectives may apply over several years. It is sometimes difficult to formulate objectives. The acronym, SMART may be useful in this respect, as a reminder that the objectives are to be Specific, Measurable, Achievable, Realistic and Time-specific. An action plan is drawn up for the work that needs to be done in order to meet the targets and objectives, i.e. for the actual implementation. The action plan state what must be done, the deadline, the person responsible, the requisite resources and to whom the results are to be reported. The action plan is renewed annually. Environmental review Review and continous improvement Policy statement Follow up and audit, report Objectives and targets Action plans Implementation and operation 6 ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION

7 In order to achieve a good result it is important that objectives, targets and action plans are integrated into the ordinary work of the agency. Another prerequisite is that sufficient resources are allocated for the implementation of the action plan. If the EMS is pursued with continuity, i.e. the environmental aspects identified as significant in the environmental review are featured in the policy, objectives, targets and in the action plan, the basis exists to enable systematic work, follow-up and continual improvement. The report that the agencies submit to their ministries annually is part of the follow-up. This reporting is based on guidelines issued by the Ministry of the Environment. All agencies have received the same guidelines, and the primary aim has been to ensure implementation of the EMS. A current discussion centres around focusing reporting more extensively on results attained and differentiating between the requirements on content of the reports according to the different needs of the agencies. Another way of following up the activity is through audits, which should be regarded as a tool in the work. The agencies EMS do not include a requirement for external audits as in the ISO standard. In internal audits the personnel assess the activity themselves: in external audits external help is obtained. In our EMS for agencies we have observed that audits are not used optimally. A network has therefore been formed with the aim of conducting audits of each other s activities, known as second-party audits. This enables agencies to access each other's experiences simply and cheaply. To ensure the success of the EMS, the top management must regularly receive information on the system. The management s review is their tool in following up the effectiveness of the EMS. Other important elements are an appropriate organisation which is part of the normal organisation. A top management representative and an environmental coordinator must be stationed in the actual activity. Finally, training should be run for the personnel. All employees should receive a short run-through of environmental issues, what an EMS is and how it affects their particular work situation. For certain groups, such as managers and environmental co-ordinators, a longer training period may be motivated. Implementation of the system is followed by a consolidation phase that focuses on continual improvement. ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION 7

8 EMS in practice 8 T h e m o d e l ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION

9 Implementation of EMS in government agencies in Sweden is part of the government s efforts to build an ecologically sustainable society. This work has been in progress since 1996 and covers the majority about 240 of Swedish government agencies. The size of these agencies varies; the smallest have about 10 employees and the largest 25,000 30,000. All agencies have some impact on the environment even though the activities at the agencies are very varied; most are purely office agencies while others (30 50) have a major direct impact on the environment such as the Swedish Road Administration and the National Property Board, or major indirect impact such as the Swedish EPA and the National Chemicals Inspectorate. Introduction of EMS into government agencies was first led by the Ministry of the Environment. It started as a small project involving 25 agencies. They were joined by an additional agencies per year, from all ministries. Since the autumn of 2000 the Swedish EPA has had the role of supporting the other agencies in the implementation stage. All agencies that have been given the task have now been offered the opportunity of participating in the Swedish EPA s training programme. Further to the training, the agencies are offered advice, seminars and other activities to facilitate exchange of experiences and dissemination of information. The Swedish EPA administrates a website in Swedish which contains a calendar of activities and documentation in the form of decisions, guidelines and reports, etc. The site also features good examples and lists of participating government agencies. The support includes a mentor programme. The responsibility for ensuring that an agency that has been commissioned to implement an EMS actually does so rests with the management of the agency. The employees must feel part of and be continually informed about the environmental work. In brief, the Swedish EPA s task is to provide support and compile the reports from the agencies. The Ministry of the Environment has overall responsibility for ensuring that EMS are implemented in the government agencies and in the government offices. Each ministry is then responsible for the dialogue on the quality in the system at its respective agencies. ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION 9

10 EMS experiences 10 E x p e r i e n c e s ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION

11 The Swedish EPA compiles the agencies reports annually, and an evaluation was conducted in These compilations are available on the Internet at The website is almost entirely in Swedish. Early in the work the annual compilation report from Swedish EPA discussed driving forces and obstacles in the process of implementing EMS (Dnr ). From one of the agencies the following is quoted: The concept of EMS can be perceived as difficult and abstract with focus on the system instead of the content and its implications for day-to-day work. It often has to compete with other horizontal issues like gender, IT etc. It is therefore important to create lasting conditions for this work. Staff commitment is by far the most important driving force for a successful EMS according to the reports. Other important motives are requirements from owner/customer, positive marketing and public responsibility. Management support and commitment is a driving force in less than one fifth of all the agencies. Obstacles must not become insurmountable or be used as an excuse for avoiding tackling environmental management issues. Most often mentioned is lack of resources, followed by conflict of goals. By this is meant, for example, that you would like to take the train rather than fly, but that it takes too long. Other obstacles mentioned by around one tenth of the authorities include Management support and commitment, legislation and ambiguity in procurement. The compilation for 2002 (report 5284) states that: The implementation of EMS in government agencies largely appears to have been a success. Those who received the task last have made nearly as much progress as their predecessors, and seem to have got underway more easily. They have perhaps learnt from the experiences of their predecessors. The environmental objectives that the agencies have set for themselves have largely been met. However, certain shortcomings in follow-ups and audits have been noted. Still Sweden is in the forefront of European countries when it comes to actively using EMS in governmental agencies. Major resources have been allocated to implementation of EMS into state administration, and valuable experiences have been gained. This effort must be safeguarded in order to survive. Only a small proportion of the 240 government agencies can be regarded as self-propelling and relatively independent of external support. ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION 11

12 The latest compilation for 2003 (report 5378) states that: The first government agencies were given the task of implementing EMS seven years ago. Between 80 and 90 percent of the agencies have conducted an environmental review, adopted an environmental policy and have set environmental objectives. This is an improvement on 2002 and shows that the development is clearly a positive one. % 100 Agencies with EMS in place Env. Review Env. Policy Env. Objectives The majority of the agencies have logically structured environmental objectives that are linked to the environmental policy. The proportion of objectives met fully or to some extent stands at more than 80 percent, which is better than in % Proportion of objective achievements Fully More than One half Not at all No answer However, an investigation in how these achievements are measured reveal a somewhat cumbersome situation. Estimations seem to be the most commonly used method for measuring to what extent the objectives are met, followed by other. Less than one fourth of all results emanate from qualitatively acceptable methods e.g. key ratios and surveys. 12 ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION

13 % Methods used to measure objective achievement Key ratio Survey Estimation Other No answer Since most of the objectives address the direct impact on the environment from energy-use, waste handling, business travels etc it ought to be fairly simple to establish key ratios for the follow-up. It is far more difficult to measure to what extent objectives for the indirect impact are achieved and here methods such as estimations are more relevant. Parenthetically it can be mentioned that an earlier effort to use key ratios for bench-marking among the authorities had to be abandoned since the effort to stream-line the data needed more time and resources than was acceptable. The parts of the system that still contain considerable scope for improvement include green procurement, training, audits/follow-ups and indirect impact on the environment. The agencies therefore still have work to do before the systems can be regarded as having been firmly established. In 2003 a total of 14 government agencies were certified according to ISO or registered according to EMAS, and 5 10 have initiated a certification process. Demands from their surroundings and better organisation and structure are reasons that the agencies have stated for proceeding to the certification/registration stage. At the Government s request, the Swedish EPA has in 2003 carried out an evaluation of progress in implementing environmental management systems in government agencies, and of the results achieved. Have agencies met the intended objectives, and where do improvements need to be made? Our evaluation shows that the agencies that have been most successful are the ones with significant external, direct impacts on the environment, for example as a result of construction and civil engineering work, operation and maintenance of buildings and other facilities, practical training and education. Just over twenty agencies report having taken action that has had substantial or very substantial beneficial environmental impacts in one or other of these areas. These are the most visible significant effects of central government agencies environmental management systems to date. Half the agencies concerned state that they have reduced their environmental impacts in one or other of the areas of office practices, use of premises or official travel. The greatest successes have been achieved with respect to recycling and waste. Far less favourable a picture emerges if we turn to the central element of the task of introducing environmental management systems, which is concerned with agen- ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION 13

14 cies indirect environmental impacts, arising from their regulations, grant schemes, official decisions, research and knowledge dissemination efforts, international activities etc. Only around thirty of the 230 agencies that have introduced an EMS report that environmental management has affected their approach to the provision of information, training and advice; and just a few say that it has affected their decisions on permits and grants, research and development programmes and international activities. The evaluation undertaken shows that these are still early days in the implementation of environmental management systems, but that the process is already yielding environmental and other benefits. At many agencies, environmental management has proved a valuable tool in improving the effectiveness of environmental programmes, and it has the potential to work even better and at a wider range of agencies. It requires relatively modest resources, and fits in with the performance-based resultsoriented approach to management that has been introduced in central government in Sweden. Environmental management is an instrument that deserves to be maintained and further refined in central government agencies. The difficulties experienced in handling the indirect environmental impacts of agencies core activities can largely be ascribed to a failure to adapt the suggested environmental management system to the regular operations of the agencies concerned. Part of the problem is a lack of communication between Government and agencies concerning priorities and levels of ambition, which also means that the Government is failing to make use of the opportunities to guide and shape environmental improvement efforts which the system introduced provides. What is more, too many agencies are refraining from auditing their EMS, removing the linchpin of the system, which requires continual improvement of environmental performance. This is the biggest threat to the system s survival. More effective action could also be achieved if a larger number of agencies were to place more emphasis on and give greater priority to addressing environmental aspects with regard to which the potential environmental benefits are greatest. Agencies which currently have an EMS that focuses largely on the environmental implications of their office practices should also use the system to tackle any environmental impacts of their core activities. The way in which environmental management systems have been used has depended to a significant extent on the principal mission of the agency concerned, and on whether it has had any other environmental tasks. Work in this area will, and should, therefore proceed along different lines at different agencies, depending on their functions. 14 ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION

15 EMS GOOD EXAMPLES Establishing a quality control system for the operations. Integrating the EMS goals in the working plans for the authority as a whole and for the divisions. Developing routines for the agency s transport with bicycle messengers and ethanol fuelled car (eco-car). Installing light sensors in all conference rooms. Only using green electricity. Replacing 80 gram copying paper with 75 gram. Saving: more than 2 tonnes of paper per year. Changing screen-settings on all PCs. Each screen uses around 77 W on a normal setting; low-level setting only uses 15 Watts. Saving: kwh or SEK/yr (3 900 euro). Minimizing the use of disposal paper cups. ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION 15

16 The Swedish political and administrative system 16 T h e s y s t e m ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION

17 Sweden has three democratically elected levels of government: the Riksdag (Swedish Parliament)at the national level, county councils at regional level and municipalities at local level. The Riksdag enacts legislation and decides on taxes and the state s 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. Parliament appoints the Prime Minister and the Prime Minister appoints the Government. The ministries are largely engaged in preparing business for the Government, in the form of draft legislation (government bills). When the Government has finished working on a bill, it is put before The Riksdag, which votes on it. When Parliament has passed legislation and 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. Sweden has been a member of the European Union since Elected bodies, running the local and regional levels are known as municipal and county council executives. They comprise politicians who are directly elected every four years. 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 some 320 central authorities, offices, committees and state-owned companies, acting in different sectors in the society, 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 SWEDISH EPA The Swedish Environmental Protection Agency is a central environmental authority under the Swedish Government. According to our instructions, laid down by the Government, our main tasks are to co-ordinate and promote environmental work on both a national and international level. The Agency's most important tasks are to: propose targets, measures and control instruments for environmental policy and environmental protection activities. (Development of environmental work) carry out environmental policy decisions on government grants, application of law etc. (Implementation of environmental policy) follow up and assess the environmental situation and environmental efforts. (Follow-up and assessment) The EPA has about 500 employees representing various skills and professional competence (information officers, technicians, lawyers, scientists, social scientists, computer specialists and journalists). ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION 17

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19 Further information The EMS described in this brochure is one initiative used in Swedish governmental agencies to promote sustainable development an in particular the ecological dimension. Other initiatives are sectoral integration of environmental issues and the 15 national environmental objectives. Brochures on this can be found at our website. For more information please see our website Contact Ulrika Hagbarth Swedish EPA Blekholmsterrassen Stockholm Sweden ENVIRONMENTAL MANAGEMENT SYSTEMS (EMS) IN THE SWEDISH NATIONAL ADMINISTRATION 19

20 The Swedish Environmental Protection Agency SE Stockholm Visitors address: Blekholmsterrassen 36 Tel: , fax: Order: natur@cm.se Internet: