Guidelines for environmental mainstreaming to increase quality and effectiveness of MSB operations

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1 samhällsskydd och beredskap PM 1 (9) SI-INS Katarina Runeberg katarina.runeberg@msb.se Guidelines for environmental mainstreaming to increase quality and effectiveness of MSB operations Introduction... 1 Governing documents... 2 Guiding principles... 3 Goals for environmental mainstreaming in operations... 5 The MSB has mainstreamed the environment into the operative process... 5 Staff engaged in operations has thorough knowledge and skills to work with an integrated environmental perspective The environment is a priority in the dialogue with partner organizations.. 7 The MSB has assumed responsibility for, and adapted to, a changing climate Benchmarks for environmental mainstreaming into operations...8 Minimum requirements for all operations....8 Requirements for operations with significant impact on the environment. 8 Introduction The MSB recognizes and values environment as a cross-cutting perspective to be integrated in all operations, but also as a branch of operations within humanitarian response and early recovery as well as within long-term capacity development operations within disaster risk reduction. The following document aims to clarify the MSB s goals and principles for environmental mainstreaming into operations. The guidelines are valid MSB-51.1

2 samhällsskydd och beredskap PM 2 (9) Governing documents The MSB s strategy for mainstreaming an environmental perspective into operations is directed by internal policy, Swedish and international laws, as well as other treaties and conventions. On an international level, the starting point of the MSB s operations is the UN Millennium Development Goals (MDG s), where the interrelation between the environment and poverty eradication is clarified. Declaration number 7 has as specific goal to ensure environmentally sustainable development. On an EU level, the Accra Agenda for Action 1 ( ) states that donor countries shall integrate an environmental perspective into all development cooperation initiatives to ensure their efficiency. Furthermore, the EU commission has agreed that disaster risk reduction is to be integrated in all disaster response and recovery programs 2. In accordance with the Swedish Government s letter of appropriation to the MSB, the agency is tasked to support development cooperation initiatives in disaster risk reduction and early recovery ( 8), which is in line with the agreement and undertakings of the Hyogo Framework for Action 3 (HFA). In this international framework, environmental protection is highlighted as a measure to reduce vulnerability and promote resilience. The Swedish government s letter of appropriation to the MSB points to the national policy document Sweden s Policy for Global Development 4 where it is stated that Swedish international politics shall promote environmentally sustainable development and prevent environmental degradation and exploitation. In accordance with Sweden s Humanitarian Aid Policy 5 Sweden is further committed to contributing to reducing vulnerability to natural disasters, including environmental or climate change related events. Humanitarian response should consider climate change and environmental concern, in short and long term perspectives. Policy for Environmental and Climate Issues in Swedish Development Cooperation 6 ( ) further states that the overall goal is an improved environment, sustainable natural resource management and improved resilience to environmental degradation and challenges caused by climate change. In all of the MSB s international operations, relevant national environmental legislation is to be adhered to. In addition to this commitment, the MSB is also striving to adhere to Swedish environmental legislation in international 1 Action Plan on Aid Effectiveness, Brussels, , COM (2009) 84 final, Communication from the European Commission and the European Parliament, the EU Strategy for Supporting Disaster Risk Reduction in Developing Countries, p.5. 3 The Hyogo Framework for Action , Building the Resilience of Nations and Communities to Disaster, Shared Responsibility: Sweden's Policy for Global Development, PROP 2002/03: Save lives and relieve suffering, Policy for Sweden's Humanitarian Aid, UD, Policy on environment and climate issues in Swedish development cooperation,

3 samhällsskydd och beredskap PM 3 (9) operations, as the Swedish legal framework often is stricter and more detailed than the equivalent legislation in the cooperating countries. The Swedish International Development Cooperation Agency (Sida), which is the MSB s largest funder for international operations, has as a requirement for funding that operations include an Environmental Impact Assessment (EIA) adapted to the nature and extent of the operation. This is a quality assurance to reduce the risk of negative impacts on the environment but also a chance to highlight positive consequences that a project with an integrated environmental approach may have. The EIA principle is not based on national or international laws or conventions, but is an evaluation tool to assess how an operation is contributing to development goals such as reducing vulnerability to disasters, conflict resolution and promoting gender equality. The MSB is certified according to ISO 14001, with an adapted management system to safeguard health, safety and the environment. MSB also has an agreed internal environmental policy that aims to systematize work in the area, and to ensure continuous learning and improvement. Guiding principles The MSB s approach to promote environmental mainstreaming is guided by following principles: 1. People and the environment are interconnected. Environmental degradation and climate change have the most adverse effects on already marginalized people. Poor women and men, girls and boys living in urban slum, in rural settings or in remote areas are usually those who have the least resources to cope with the consequences of climate change. Often women and children are the ones who are the worst affected. Climate change increases the vulnerability of those already most vulnerable and reduces their opportunities to develop and ensure sustainable livelihoods. 2. Environmental mainstreaming is a measure to reduce vulnerability. A healthy environment has the capacity to naturally and autonomously recover from disasters and constitutes a natural defence, or a buffer, against natural events. UN International Strategy on Disaster Risk Reduction (UNISDR) has developed various measures to reduce the risk for disasters, many of which are harmonized with environmental protection measures. Comprehensive and multi-sectorial risk assessment and disaster risk reduction in urban planning, vulnerability assessments and standardized rules for construction plans and buildings are examples of synergies between disaster risk reduction and environmental mainstreaming in practice 7. Climate adaptation measures means that infrastructure is adapted to the challenges that 7 Words Into Action: A Guide for Implementing the Hyogo Framework, 2007.

4 samhällsskydd och beredskap PM 4 (9) changes in the climate may carry with them such as extreme weather conditions, for example strategies to deal with unusually high water levels, and to formulate strategies for disaster management including preparedness and recovery. 3. An integrated environmental perspective is a damage control measure. Natural events, disasters and conflicts often have a negative impact on the environment, with direct or indirect effects on people s health, livelihood opportunities and security. In addition to this, humanitarian operations often leave negative traces behind, such as waste and debris, inefficient resource management and unsustainable concentrations of human settlements. Disaster and conflict prone regions tend to enter into a negative spiral where dysfunctional resource management may have a negative cumulative effect for development. Not integrating an environmental perspective in all work is therefore counterproductive and may add to the severity of a disaster or may in itself be a reason for new disasters such as forced migration, aid-dependency and increased vulnerability when the humanitarian operation has been terminated Successful development cooperation is environmentally sustainable. Many low-and middle income countries have a limited capacity, and lack management, when it comes to environment and natural resources governance. It is often not the regulatory frameworks in themselves that are the problem, but lacking adherence is a result of weak institutions, unclear roles and responsibilities, dysfunctional financial systems, inadequacies in transparency and the lack of popular support. The aim of the MSB is to provide humanitarian assistance that does not leave environmental damage behind and offer solutions that are environmentally sustainable. This includes being proactive in offering assistance in addressing acute environmental hazards as well as to strengthen the countries own capacity and capability to utilize the environment as a resource for disaster risk reduction. All operations include activities that affect the environment, not the least in the form of travel. An integrated environmental approach does not mean not conducting operations with a significant impact on the environment or to stop travels or fieldtrips in operations. An integrated environmental perspective means to be an environmentally conscious actor who highlights the environmental aspects throughout the operations and aims to reduce adverse effects to the furthest extent possible. An integrated environmental perspective helps to improve efficiency of the operations and contributes to: Delivering sustainable results and preventing aid-dependency 8 UNEP Mainstreaming Environment into Humanitarian Action, 2011.

5 samhällsskydd och beredskap PM 5 (9) Mitigating direct and indirect negative impacts on the environment and populations Cost-cutting and efficient use of resources An integrated environmental perspective in an early stage of a humanitarian operation gives a good bridging opportunity to also include environmental concern in the recovery phase of the operation and by this pave the way for a cost-efficient and sustainable development cooperation work. Goals for environmental mainstreaming in operations The overall goal for the MSB s work with environmental mainstreaming is to increase the quality and effectiveness of operations. The following operational goals will contribute to achieving the overall goal: The MSB has mainstreamed the environment into the operative process. A mainstreamed environmental perspective in operation entails that environmental issues are recognized and taken into consideration in all aspects and phases of the operation. Different analytical tools and work methods are used to highlight the environmental impacts resulting from the operations. The MSB program officer, in cooperation with the recipient organization or project partner, is responsible for integrating the conclusions or recommendations from the environmental assessment tools into the work process. The objective is that the operation shall have the least possible, and only justifiable, adverse impact on the environment and that the initiative will contribute to a reduced vulnerability to disasters in the future. Well-integrated environmental work ensures continuity and stability in the operations, all aspects included, from planning through execution to completion, monitoring and evaluation. Measurable indicators: By 2015, the MSB has developed an environmental handbook with methods and practical advice for operations 9. This handbook will be adapted to the existing competences of the MSB and therefore become a practical tool in the mainstreaming process within different types of operations. The handbook will assist the MSB program officers in identifying entry points and potential synergies between environment and the project s elaborated terms of reference, SOP s, project descriptions, budgets and reporting. 9 Compare with the MSB Gender Equality Handbook Practical Advice for International Assistance, 2009.

6 samhällsskydd och beredskap PM 6 (9) By 2015, the MSB has a diversified tool-box with user-friendly tools and methods for environmental mainstreaming for the different phases of the project cycle (i.e. check-lists for project management, assessment guidelines and reporting templates). The tools will be accessible to all program officers in electronic versions on the MSB electronic document platform. By 2015, all operations with significant environmental impact will use expert assistance at head office and/or Environmental Field Advisors (EFA) in the planning, execution, completion as well as in monitoring and evaluation of operations. Staff engaged in operations has thorough knowledge and skills to work with an integrated environmental perspective. Environmental expertise is an area that includes several different professional disciplines as well as detailed technical skills depending on the nature of the operation. This needs to be reflected both at head office as well as in field operations. Measurable indicators: By 2015, the MSB will have applied environmental mainstreaming into all relevant training modules for head office staff as well as for field staff on the MSB staff roster. By 2015, the MSB will have specialists on environment and environmental integration in operations, including: 1. Environmental advisor for the operations 2. A comprehensive pool of experts in the operations staff roster to be utilized in environment-specific operations but also as environmental advisors in the field (EFA) 3. Environmental Field Advisors is a staff profile that can be offered to stand-by partners as a deployable expertise By 2015, there are clear and defined Terms of References including roles and responsibilities for environmental mainstreaming for all operations. The operation s team leaders are ultimately responsible for insuring adherence to the ToR s and with a responsibility to report on the issue. By 2015, the MSB will be recognised among national and international partner organizations for having a comprehensive and results oriented approach for environmental mainstreaming into operations, with a clearly defined respect for the environment and attention to climate change.

7 samhällsskydd och beredskap PM 7 (9) The environment is a priority in the dialogue with partner organizations. Environmental mainstreaming in humanitarian aid is an area with great development potential. Environmental concern is rarely an integral part of humanitarian operations, mainly due to lack of awareness of long-term importance, but also of the benefits associated with environmental integration in the operational process. In addition to this, there are structural flaws. There is at present no direct policy document to ensure integration of the environmental perspective and humanitarian actors are rarely asked to conduct environmental impact assessments of their operations. Sweden is a pioneer in environmental protection and the MSB's environmentally conscious approach and goal to act and be perceived as a responsible actor can be an inspiration for others. The environmental perspective should be taken seriously and be integrated as a concrete goal in dialogue with partner organizations at both the organizational and the individual levels. Measurable indicators: By 2015, the MSB will have environmental mainstreaming as a quality goal and perspective, among the priorities listed in any form of dialogue with partner organizations. Issues relevant to environmental protection and environmentally sustainable development should be raised and documented during project planning and monitoring. By 2015, the MSB will have established an expanded network of organizations and experts working with environmental mainstreaming in operations to exchange experiences and stimulate interaction between different parties. By 2015, the MSB will have been proactive towards the adoption of a new resolution from the UN General Assembly regarding the environmental aspects of operations. Anchoring at a high political level should provide guidelines for implementation and monitoring of results at international and national levels. The MSB has assumed responsibility for, and adapted to, a changing climate. One of the MSB s agreed focus areas to be reached by 2014 is to be prepared to meet the challenges related to climate change: The MSB will increase the individual's and society's ability to cope with natural events and by disaster risk

8 samhällsskydd och beredskap PM 8 (9) reduction measures help people to reduce their vulnerability for natural disasters 10 ". Efficient resource management by the MSB will positively contribute to limiting the causes of climate change. By 2015, the MSB will have developed tools for environmental mainstreaming which will contribute to reducing the vulnerability and meeting the challenges that women, men, girls and boys are facing as a result of climate change. Benchmarks for environmental mainstreaming into operations Minimum requirements for all operations. The minimal requirement relevant to all operations of the MSB, including roster staff seconded to other organization s operations, is to create a common framework of understanding and knowledge about environmental mainstreaming in operations. To achieve this, the deliverables are: All operations shall be assessed from an environmental perspective to determine if the environmental impact of the operation is limited or significant. All roster staff shall partake in basic trainings on how to integrate an environmental perspective to increase quality and efficiency of operations. All roster staff will receive context specific environmental briefings with focus on practical tools and advices targeting the specific intervention area and task. The MSB staff and deployed roster staff shall actively use the environmental handbook as a resource when making environmental considerations and assessments of the operations. Deployed roster staff will report on environmental issues during the duration of the operation. All MSB staff is contractually bound to follow the MSB code of conduct and are urged to always act as role models to promote environmentally sustainable work methods during their deployment. Requirements for operations with significant impact on the environment. In operations where the environmental impact is expected to be significant, the MSB should strive for a higher level of ambitions for environmental mainstreaming. 10 The MSB's action plan for natural disasters and climate change adaptation, , p3.

9 samhällsskydd och beredskap PM 9 (9) In addition to the minimal requirements, the benchmark for selected projects may include, but is not limited to, the following activities: Project description and project plan - Environmental aspects are clearly visible and reflected in goals, expected results, activities and budget. - Environmental experts participate in the start-up phase of the project and partake when setting goals and also elaborate environmental activities related to the intervention. - An environment impact assessment is elaborated during the planning phase of the intervention and forms the base for the activities contributing to an improved environmental performance of the operation. Project implementation - A close dialogue for shared ownership of the ambition to reach the set goals. - In a larger operation an environmental field advisor will be connected to the operation in a comprehensive manner. - Field trips will be organized with a particular environmental focus. - Environment is considered in contracts, project plans and procurement. - Thematically specific environmental reporting during the implementation phase of the operation. Reporting, monitoring and evaluation - In all roster staff s terms of reference the environmental perspective is clearly integrated. - The evaluation of the intervention will clearly account for environmental aspects, both qualitative and quantitative, and shall if needed be executed by an environmental expert. - Environmental aspects are included in field staff debriefings and questionnaires. - Program officers shall evaluate if the set goals have been reached and ensure that good practices will be documented and duplicated and unreached targets will be lessons learned.