Abstract
Conventional wisdom on the pursuit of environmental security suggests two things: first, that it can be achieved through better or even global governance, and second, that the United Nations is best placed to provide this improved governance. These have become axioms, little explored or challenged. It seems appropriate, then, to consider how the United Nations has grappled with an issue which simply was not a matter for international concern SO years ago and which was not incorporated in the UN’s mandate. This chapter begins with a brief survey of the environmental agenda and then proceeds to examine the ]global governance debate through an analysis of the ‘inadequate state’, the critique of sovereignty and the imperatives for comprehensive security. The second section of the chapter explores the way in which environmental security issues have been pursued within the United Nations, with an emphasis on the UNCED process. The third section provides a critical analysis of those processes and explores proposals for reforming the United Nations to make it more receptive to the imperatives of environmental security. The final section returns to the themes of sovereignty and global governance, suggesting that within the UN system, global environmental governance may well be little more than sovereignty with a kinder, gentler face and therefore, limited as a framework or informing paradigm for achieving environmental security.
Is the international community as it exists ... capable of action within the available time? There is hardly reason for optimism. The world is divided into sovereign states that are not willing to give up their formal freedom of action.1
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Notes
Sverker Astr öm, Swedish Ambassador to the UN, made this observation when, in 1968, he proposed on behalf of the Swedish government that the UN hold an international conference on environmental issues (the 1972 Stockholm Conference) (see Wade Rowland The Plot to Save the World: The Life and Times of the Stockholm Conference on the Human Environment, Toronto: Clarke, Irwin A Co, 1973 p. 33.
For example, concentrations of CO2 have increased by 25 per cent since pre-Industrial times. See Michael Orubb ‘The Greenhouse Effect: Negotiating Targets’, International Affairs 66(1) (January 1990), pp. 67
Thomas Rosswall, ‘Greenhouse Gases and Global Change: International Collaboration’, Environmental Science and Technology 25(4) (April 1991), p. 567
Erik Arrhenius and W. Waltz Thomas, The Greenhouse Effect: Implications for Economic Development, World Bank discussion paper No. 78, The World Bank: Washington DC, 1990, p. 2.
Figures on the extent of tropical deforestation vary, with estimates varying between 11 million hectares (see Caroline Thomas, The Environment in International Relations, London: Royal Institute of International Affairs, 1992, p. 42
Pratap Chatterjee and Matthias Finger, The Earth Brokers, London: Routledge, 1994, p. 46).
Desertification is defined in Agenda 21 as ‘land degradation in arid, semi-arid and dry sub-humid conditions’. This involves, if one incorporates the 1977 UNEP definition, the diminution or destruction of the biological potential of the land: Dejen and Shahid Akhtar Abate ‘Information and Knowledge Inputs: Combatting Desertification in Africa and Transboundary Air Pollution in Europe’, Environmental Policy and Law 24(2/3) (1994), p. 72.
The UNDP, Human Development Report, New York: Oxford University Press, 1994 p. 29
See inter alia Martyn Murray, ‘The Value of Biodiversity’, in Gwyn Prins (ed.), Threats without Enemies, London: Earthscan, 1993, p. 70
Walter V. Reid, ‘Conserving Life’s Diversity: Can the Extinction Crisis be Stopped?’, Environmental Science and Technology 26(6) (June, 1992) p. 1090.
Erskine Childers refers to a proposal made by a British MP in the House of Commons in September 1989 that Brazil’s forests be placed under UN trusteeship: Erskine Childers, ‘The Future of the United Nations: The Challenges of the 1990s’, Bulletin of Peace Proposals 21(2) (1990) p. 144.
World Commission on Environment and Development, Our Common Future, Oxford: Oxford University Press, 1987, p. 27.
Tony Brenton, The Greening of Machiavelli: The Evolution of International Environmental Politics, London: Earthscan/Royal Institute of International Affairs, 1994, p. 7.
Elise Boulding, ‘States, Boundaries and Environmental Security in Global and Regional Conflicts’, Interdisciplinary Peace Research 3(2) (October/November 1991), pp. 78–93.
Gwyn Prins, ‘Politics and the Environment’, International Affairs 66(4) (1990), p. 722.
Patricia Mische, ‘Ecological Security and the Need to Reconceptualise Sovereignty’, Alternatives XIV (1989), p. 401.
Although Maurice Strong (Secretary-General of both the Stockholm and Rio Conferences, first Executive Director of UNEP and member of the World Commission on Environment and Development) wrote these words in 1973, they continue to represent views about the reshaping of International governance. See Maurice F. Strong, Introduction to Wade Rowland, The Plot to Save the World: The Life and Times of the Stockholm Conference on the Human Environment, Toronto: Clarke, Irwin & Co., 1973, p. x.
PRIO/UNEP, Environmental Security: A Report Contributing to the Concept of Comprehensive International Security, Oslo: Peace Research Institute Oslo/United Nations Environment Programme, 1989, p. 10.
Some do suggest a supra-national authority. Ikeda argues that ‘each country must abandon its long-held belief in the primacy of national sovereignty and be prepared to transfer part of its authority to the International body’. See Daisaku Ikeda, ‘A Renaissance of Hope and Harmony’, Bulletin of Peace Proposals 23(2) (June 1992), p. 128.
Andrew Hurrell and Benedict Kingsbury (eds.), The International Politics of the Environment, Oxford: Clarendon Press, 1992, p. 8.
Hilary French, ‘Strengthening Global Environmental Governance’ in Lester R. Brown (et al.) (eds.), State of the World 1992, London: Earthscan, 1992, p. 157.
Lothar Brock, ‘Peace through Parks: The Environment on the Peace Research Agenda’, Journal of Peace Research 28(4) (November 1991), p. 407.
The connection between environment and security is usually advanced in terms of the potential for conflict over environmental degradation. This has sometimes been resisted by strategists and security planners, although Norman Myers has been moved to suggest that ‘the difficulty of perceiving connections between environment and instability may say less about the nature of the connections than about the limited capacity of policy-makers to think methodically about matters that have long lain outside their purview’ (Norman Myers, ‘Environment and Security’, Foreign Policy 74 (Spring 1989), p. 39). Daniel Deudney, on the other hand cautions against linking environmental degradation to ‘national security interests’ precisely because this enables environmental degradation to be addressed via inappropriate nationalism and traditional security responses (Daniel Deudney ‘The Case against Linking Environmental Degradation and National Security’. Millennium 19(3) (Winter 1990), pp. 461–76).
UNDP Human Development Report, New York: Oxford University Press, 1994.
For further discussion on this, see, inter alia, Arthur Westing, ‘The Environmental Component of Comprehensive Security’, Bulletin of Peace Proposals 29(2) (June 1989), pp. 129–34
Norman Myers, ‘Environment and Security’, Foreign Policy No 74 (Spring 1989), pp. 23–41.
UNDP, Human Development Report, New York: Oxford University Press, 1992.
Ronnie D. Lipschutz and Ken Conca (eds.) The State and Social Power in Global Environmental Politics, New York: Columbia University Press, 1993, p. 1.
Maurice F. Strong’, ‘ECO ‘92: Critical Challenges and Global Solutions’, Journal of International Affairs 44(2) (1991), p. 297.
Maurice Williams, ‘Guidelines to Strengthening the Institutional Response to Major Environmental Issues’, Development 1992:2 (1992), p. 23.
The history provided here is necessarily brief and selected. For more detail see, for example, Patricia Birnie, ‘International Environmental Law: Its Adequacy for Present and Future Needs’, in Andrew Hurrell and Benedict Kingsbury (eds.), The International Politics of the Emir-onment, Oxford: Clarendon Press, 1992
Mark Imber, ‘Too many Cooks? The post-Rio Reform of the United Nations’, International Affairs, 69(1), (January 1993), pp. 55–70.
Maurice Strong, who now heads the Board of the Earth Council, a nongovernmental organization with its headquarters in Costa Rica, has long favoured an Earth Charter which would incorporate a statement of ethics and principles rather than managerial statements. Rowlands suggests that Boutros Boutros-Ghali has also expressed a desire to use the Rio Declaration as the basis for such a Charter, to be developed to coincide with the 50th anniversary of the UNI See Ian H. Rowlands, ‘The International Politics of Environment and Sustainable Development: The post-UNCED Agenda’, Millennium 21(2) (Summer (1992), p. 215)
Tickell calls it a ‘rag-bag of points judged to be important in the next century’. See Crispin Tickell, ‘The Inevitability of Environmental Insecurity’, in Gwyn Prins (ed.), Threats without Enemies: Facing Environmental Insecurity, London: Earthscan, 1993, p. 23.
Andrew Hurrell and Benedict Kingsbury (eds.), The International Politics of the Environment, Oxford: Clarendon Press, 1992, p. 34
Andrew Hurrell and Benedict Kingsbury (eds.), The International Politics of the Environment, Oxford: Clarendon Press, 1992, pp. 217–18.
Ian H. Rowlands, ‘The International Politics of Environment and Sustainable Development: the post-UNCED Agenda’, Millennium 21(2) (Summer 1992), p. 223.
Tony Brenton, The Greening of Machiavelli: The Evolution of International Environmental Politics, London: Earthscan/Royal Institute of International Affairs, 1994, p. 221.
Childers points out that in human resources, the entire staff of the UN agencies (world-wide and for all purposes) numbered about 50,000 (about one-third, he suggested, of the number of people at that time employed by British Rail). See Erskine Childers ‘The Future of the United Nations: The Challenges of the 1990s’, Bulletin of Peace Proposals 21(2) (1990), p. 147
Maurice Williams, ‘Guidelines to Strengthening the Institutional Response to Major Environmental Issues’, Development 19922 (1992), p. 24.
Coordination among various UN bodies and agencies was initially the responsibility of the Environment Coordination Board established following Stockholm. It was wound up in 1977. See Brenton, The Greening of Machiavelli, p.50. Prior to the UNCED conference, coordination of Environmental mandates was the responsibility of the DOEM (Designated Officials for Environmental Matters of the United Nations) and the CIDIE (Committee of International Development Institutions on the Environment). The CIDIE, which was established in 1980, includes representatives of UNEP, IBRD, UNDP and 11 other intergovernmental financial institutions. At the end of 1992, the Secretary-General announced the creation of a Department for Policy Coordination and Sustainable Development which will staff the CSD which will, in turn, be subject to the coordinating efforts of ECOSOC and the ACC (Administrative Coordinating Committee). The ACC has also created a new sub-committee — the Inter-Agency Committee on Sustainable Development. See Mark Imber, ‘Too Many Cooks? The post-Rio Reform of the United Nations’, International Affairs, 69(1) (January 1993), p. 115).
Peter Haas, Marc A. Levy and Edward A. Parson, ‘Appraising the Earth Summit: How Should We Judge UNCED’s Success?’, Environment 34(8) (1992), p. 11.
For more detailed discussion of the menu of options see, inter alia, Jim MacNeill, ‘The Greening of International Relations’, International Journal, XLV(1) (Winter 1989–90), pp. 1–35
Maj Britt Theorin, ‘Military Resources to the Environment’, Bulletin of Peace Proposals 23(2) (June 1992), p. 121.
See, for example, the analysis provided by Chatterjee and Finger who are critical of what they call the ‘Big 10’ Environmental NGOs. See Pratap Chatterjee and Matthias Finger, The Earth Brokers, London: Routledge, 1994.
Aidan Davison and Ian Barns, ‘The Earth Summit and the Ethics of Sustainable Development’, Current Affairs Bulletin 69(1) June 1992, p. 10.
Ian H. Rowlands, ‘The International Politics of Environment and Sustainable Development: the post-UNCED Agenda’, Millennium 21(2) Summer 1992, p. 223.
World Commission on Environment and Development, Our Common Future, Oxford: Oxford University Press, 1987, p. 19.
Ken Conca and Ronnie D. Lipschutz, ‘A Tale of Two Forests,’ in Ronnie D. Lipschutz and Ken Conca (eds.), The State and Social Power in Global Environmental Politics, New York: Columbia University Press, 1993 p. 3.
Wolfgang Sachs, ‘Introduction’ in Wolfgang Sachs (ed.), Global Ecology: A New Arena of Political Conflict, London: Zed Books, 1993, p. 17.
Vandana Shiva, ‘The Greening of the Global Reach’, in Wolfgang Sachs (ed.), Global Ecology: A New Arena of Political Conflict, London: Zed Books, 1993, p. 182.
Judith Kildow, ‘The Earth Summit: We Need More than a Message’, Environmental Science and Technology 26(2) 1992, pp. 1077–8.
Marc A. Levy, Peter M. Haas and Robert O. Keohane, ‘Institutions for the Earth: Promoting International Environmental Protection’, Environment 34(4), 1992, p. 14.
Nicholas Hildyard, ‘Foxes in Charge of the Chickens’, in Wolfgang Sachs (ed.), Global Ecology: A New Arena of Political Conflict, London: Zed Books, 1993.
Quoted in John Peet, Energy and the Ecological Economics of Sustain-ability, Washington DC: Island Press, 1992, p. 208.
Patricia Mische, ‘Ecological Security and the Need to Reconceptualise Sovereignty’, Alternatives XIV (1989), pp. 389–427.
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Elliott, L. (1998). Greening the United Nations: Future Conditional?. In: Paolini, A.J., Jarvis, A.P., Reus-Smit, C. (eds) Between Sovereignty and Global Governance. Palgrave Macmillan, London. https://doi.org/10.1007/978-1-349-14342-9_7
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