Manual on the Development of Cleaner Production Policies ... - Unido

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DEVELOPMENT OF CP POLICY MODULE 3: CP POLICY DEVELOPMENT CYCLE Policy development is also an interactive and time-consuming process. As noted above, it is sensitive to political changes. Results tend to be slow and expectations must consequently be realistic. Since activities need to be planned over a long-term horizon, industry requires a transition period to allow it time to adapt to policy instruments. It is essential to include an effective mechanism to monitor progress and evaluate the effectiveness of the policy and its instruments. It is practically impossible to get everything right the first time, and modification and adjustments will be needed to adapt the approach to the needs. Finally, experience shows that it is beneficial to include as many incentives as possible. Pure coercion is rarely effective, and it is much better to provide the “carrot” of economic instruments and information-based instruments at the same time as the “stick” of environmental regulations. It is useful to keep in mind that prevention and good design right from the start is three to five times cheaper than retrofitting. SLIDE: Basic conditions for CP policy development • Political will and the interest of stakeholders; • General environmental awareness and pressure of public opinion; • Policy continuity and stability; • Broad local ownership of the process and support at the highest level; • Market conditions and ownership that encourage a reduction in production costs; • Integration and mainstreaming of CP into non-environmental policies; • Institutionalization of CP: a strong and active CP centre. Using this slide, present the conditions that are necessary or desirable for successful CP policy development. You may want to return to these basic conditions at the end of module 3 when discussing the obstacles to policy development. Background There are a number of preconditions for successful CP policy development. First and foremost is the political will and interest of stakeholders. This is crucial since there will be times when decisions to be taken are controversial or go against the interest of certain groups. For instance, any increase in the price of resources and energy, while creating an incentive for their more rational use, is likely to be opposed by industry. Experience also shows that CP and preventive environmental programmes are more likely to succeed in countries where there is an adequate level of environmental awareness. The ensuing pressure of public opinion spurs companies on to adopt sound environmental practices. Policy development calls for continuity and stability. During an election or change of government and legislature, policies are frequently changed or reversed. While this situation remains to a large degree beyond the influence of a CPC, in an effort to minimize its impact, a CPC could seek support for the concept of CP, based on a broad ownership of the policy process. A CPC may wish to support local political parties that are willing to include environment and CP in their programmes. PAGE 50
DEVELOPMENT OF CP POLICY MODULE 3: CP POLICY DEVELOPMENT CYCLE Cleaner production is a concept that calls for understanding and approval by society as a whole. In order to publicize it (let alone mainstream it) successfully, a broad coalition needs to be formed that will draw various stakeholders into the effort. The advantage of this approach is that it makes the policy process less sensitive to political change. While Governments may be reorganized at the time of elections, more often than not the work of the private sector, associations of industry, academia and non-governmental organizations (NGOs) is largely unaffected. Building a coalition of these sectors and ensuring their support prevents the paralysis of a policy process as a result of a political reshuffling. CP policy development should be supported by the most senior level of decision makers. The backing and/or participation of a government minister, the chairman of the environmental commission of a national assembly, or the president of a chamber of industry, can often determine whether or not a CP programme results in a supporting policy. Both the ownership structure and existing market conditions should create incentives to reduce production costs. State subsidies for resources or protectionism in favour of State-owned and -managed enterprises, for example, do not give the right signals to promote efficiency. CP is even more efficient when it is also integrated into non-environmental policies, for instance, by promoting CP as a tool to improve competitiveness. The mainstreaming of CP is considered the most effective way to achieve both environmental and economic benefits and to create conditions for its sustainable application. Finally, the role of the CP centre itself cannot be overestimated. If it is to have any impact on policy, a CP centre must be strong and active and enjoy the full support of its stakeholders. NCPCs have several natural attributes for the policy role. The fact that a CPC is rarely located within a government structure nor is it an individual consultancy, lends CP centres their independent and non-partisan character. Provided a CP centre is able to build a sufficiently high profile, it is likely to be acceptable to a variety of stakeholders. SLIDE: Specific steps in policy development • Stakeholder analysis; • CP awareness-raising among policy makers; • Setting up a high-level steering committee; • Establishment of a technical policy development group; • Evaluation of the existing system; • Building a consensus and common goal; • Identification of priorities and focus areas; • Define clear and measurable objectives. PAGE 51
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