1. IINTRODUCTION - United Nations · 1. IINTRODUCTION The National Sustainable Development (NSD)...

1. IINTRODUCTION

The National Sustainable Development (NSD) Policy is aproduct of the National Commission on SustainableDevelopment (NCSD). The Commission was established by

Cabinet directive on March 30th, 1997 with a mandate to developa National Sustainable Development Policy for Barbados. Twenty-two individuals, representing a cross section of agencies andstakeholders, were designated to serve the Commission for aterm of three years with the Ministry of Environment1 serving asSecretariat.

The formulation of the NSD Policy is envisaged as onecomponent of a new approach to Sustainable Development inBarbados, one which aims to deal with individual issues from anintegrated and holistic perspective. The NSD Policy hasimplications for a wide range and diversity of subjects goingbeyond the realm of environmental preservation to include social,cultural, economic, legal, educational and taxation issues to namea few.

The integrated framework is somewhat revolutionary as it seeksto depart from the traditional sectoral approach to nationaldevelopment planning. The integrated framework requires co-ordination of policies, plans, projects and programmes at thevarious levels in society. In this regard it will address the inherentweakness in the present approach to planning which results in (forexample), weak links among the Physical Development Plan, theNational Economic Plan and the National Strategic Plan.

The NSD Policy, for example, will seek to reconcile the inherentdifferences between the traditional twenty year developmentplanning time frame and the longer time frame (50 yearsminimum) required for monitoring and assessing phenomenasuch as global climate. Ultimately, the Sustainable Developmentpolicy is intended to strengthen this process by providing aframework which promotes the development of our economic andsocial capital while ensuring the wise and proper stewardship ofour environmental capital.

The NSD Policy seeks to ensure that development is undertakennot only in the right way but more importantly to ensure that theright things are done. It therefore requires that there are noinherent conflicts between substance and process. Doing thingsthe right way will require an appropriate mechanism that verifiesthe process, whereas appropriate standards will validate thesubstantive things that are done.

The NSD Policy is divided into two inter-related sections. The firstsection contains the core concepts which inform the principles ofSustainable Development in Barbados. The second sectionprovides specific policy recommendations which will informsustainable practices and activities in Barbados.

Part I National Sustainable Development Policy

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The NSD Policy has been distilled from a longprocess of consultations at various levels andamong the different partners of nationaldevelopment which include: government, the for-profit non-governmental organisations; the non-profit organisations; community basedorganisations; and the labour, youth and women

organisations.1In 1997, the Ministry was designated the Ministry of Health andEnvironment; in 1999 the Ministry of Environment, Energy & NaturalResources. In 2002 it became the Ministry of Physical Developmentand Environment. In 2003the desination of Ministry of Housing, Landsand the Environment was assigned.

Generally, the aim of a policy is to articulate the overall goalas well as the means whereby the goal will be achieved. Inthe case of the NSD Policy, the goal and therefore the aim,

is the pursuit of Sustainable Development by all sectors, groupsand individuals in Barbados. In other words the aim of the policyis to sensitize all persons in Barbados about the need to makewise choices daily, at the individual, household, business,community and national levels because these choices affect ournational development. These choices include the things weconsume, the way we produce goods and services, how wedispose of our waste and generally our lifestyles (habits, attitudes,conduct).

Sustainable Development is a broad-based concept that impingeson all sectors and activities of national development and so it isdifficult to attempt to prescribe detailed actions for each actor,stakeholder and decision-maker. This policy therefore is notintended to be a blueprint for sustainability. Rather this policy isintended to provide guidelines and a pragmatic framework thatfacilitates decision-making at the level where costs and benefitsaccrue whether it is at the national, corporate or individual level.It is envisaged that this policy will be translated into concreteaction plans by informing all programmes and projects preparedby the various sectors, businesses, communities and individuals.

2. PPOLICY AAIMS


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3. DDEFINITIONS

The Sustainable Development concept is rather elusive in itsmeaning and it is difficult to reach a consensus on itsdefinition. At worst, the Sustainable Development concept is

in danger of becoming everything to everyone; such thatenvironmentalists want ecosystems sustained, politicians wanteconomic growth sustained, community organisations wantcommunities sustained and so on. A practical definition ofSustainable Development therefore requires a balancing of thesecompeting goals.

Notwithstanding the lack of universal consensus on its definition,most writers will agree that the Sustainable Developmentparadigm represents a marriage between development andenvironment. Sustainable Development is about maintaining anacceptable balance between these two limbs. In this regard it mayperhaps be more appropriate for Sustainable Development to bedefined at the national level.

To provide some focus in an area as immense and as hotlydebated as Sustainable Development is, and to ensure thatpriorities are addressed from a common perspective, reference isdrawn to two working definitions. The first comes from the 1992report to the United Nations Conference on Environment andDevelopment (UNCED) by the Bruntland Commission whichdefined Sustainable Development as:

"...development that meets the needs of presentgenerations without compromising the ability offuture generations to meet their own needs."

This definition was agreed to at UNCED by the global communityas straightforward and workable for everybody. Essentially it saysthat one does not do things today that make life today, or the lifeof future generations, more difficult in terms of access to naturalresources, industrial and commercial raw materials, food, shelter,ecosystem life support systems, secure social structures, and soon. Neither does one leave behind a legacy of waste, pollutedenvironments, social disarray and economic demise for futuregenerations to grapple with.

Secondly, the definition which has been generated by our NCSDapplies directly to the Barbadian context. Sustainability inBarbados is demonstrated within a society which is not crippledby poverty, unemployment, social unrest and crime, but rather onewhich features strong community ties, stable and supportivefamily structures and a responsible and respected politicalclimate.

Concurrent considerations which emerge from Barbados' smallisland characteristics include the opportunity to take advantage ofa number of positive attributes which can enhance the


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operationalisation of our goal. It is envisagedthat our small physical size in combination withan educated and adaptable population, willfacilitate speedier and more effective lifestylechanges in the pursuit of SustainableDevelopment.

The NCSD proposes a Barbadian-specificdefinition of Sustainable Development as:

"Development which optimises thequality of life of every person withoutover-exploiting natural andenvironmental assets and services, orjeopardizing social and economicdevelopment."

The essence of this definition of SustainableDevelopment is to distill a working definition fromthe ongoing international dialogue that includesAgenda 21, the Barbados Programme of Action,and the Bolivia Plan of Action. Indeed, this policyis meant to be the interpretation and functionalityof the principles contained in those variousinternational action plans.

The lynch-pin of this interpretation ofSustainable Development is that the pursuit ofeconomic growth (economic capital) andsocial development (social capital) inBarbados, ought to be balanced and inharmony with the inherent limits of ourecological capital.

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Goal

The over-arching goal of this policy is to ensure theoptimisation of the quality of life for every person byensuring that economic growth and development does not

occur to the detriment of our ecological capital.

Objectives

This policy examines the core concepts of SustainableDevelopment upon which the national definition was built and inlight of which specific policy statements are made. The mainobjectives of this policy are:

1. To formulate (or provide) a national definition of SustainableDevelopment and identify national principles for the pursuit ofSustainable Development;

2. To provide a national framework for decision-making based onour principles of Sustainable Development;

3. To promote principles of Sustainable Development andencourage all persons in Barbados to adopt and apply theseprinciples in every aspect of decision-making; and

4. To sensitise and educate all persons in Barbados about keyissues and conflicts between development and environmentand the need to make wise consumption and productionchoices.

Strategies

It is anticipated that these objectives will be achieved by ensuringthat:

1 "Quality of life" is endorsed as the overarching goal and that thisis composed of a variety of economic, social, cultural andpersonal factors and is not based on income earnings oraccumulated wealth alone.

2. Bio-physical "limits to growth" are taken into considerationwhen decisions are made with regards to resource use. Theselimits include the:

finite supply of some resources

natural carrying capacity of ecosystems

fragility and vulnerability of some ecosystems

finite resilience of ecosystems to resist and recover fromman's impacts

limited waste assimilation capacity of the naturalenvironment

4. PPOLICY OBJECTIVES &&GOALS


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Natural resources are not to be exploited tothe extent that it inhibits the ability of futuregenerations to meet their own needs. In thisregard it will be necessary to invoke thePrecautionary Principle and to insist on theapplication of Safe Minimum Standards inrespect of resource use, recognising theexistence and aesthetic values of somenatural assets over and above a utilitarianand/or monetary value that mandate theirprotection and preservation.

3. Economic tools and methodologies, such asmonetary valuation of natural and

environmental resources, cost benefitanalysis and internalisation of externalenvironmental costs play anincreasingly important role in thedecision making process with

regards to natural and environmentalresource use, notwithstanding considerationsof physical sustainability constraints.

4. All sectors of society as well as futuregenerations are provided with an equitableopportunity to ensure that their quality of life ismaintained at a level not lower than that ofcurrent generations . This is to be achieved inpart by ensuring that the core concepts ofSustainable Development are upheld withregards to natural and environmentalresource use and social development plans.

5. That all major stakeholders in civil society areinvolved in the decision making process atevery level from project development andimplementation to national and internationalpolicy development for every sector and/orissue.

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5. PPRINCIPLES OOFSUSTAINABLEDEVELOPMENTFOR BBARBADOS

Aconsideration of the core concepts of SustainableDevelopment and their operation in the Barbadian contextreveals a somewhat paradoxical situation. On one hand,

Barbados has demonstrated a utilitarian approach to resourceuse, typical of orthodox economics approaches. This "weaksustainable" approach means essentially that natural andenvironmental assets and services have traditionally been viewedas available and intended for our present (human) utilisation.

Conversely, Barbadians express very strong "normative" opinionsabout "the way things should be"; so that while viewing resourcesas ours to be used, Barbadians also want to ensure inter- andintra-generational equity and at the same time, promote the socialcomponents of "quality of life".

This policy seeks to promote the idea that economic developmentand sustainable management of resources are not incompatiblegoals. It is notable that environmentally benign systems may insome cases generate income for the company or agencyinstituting them .

Largely absent from this approach has been the recognition thatutilitarian actions and "green" views may not be compatible. It isnot possible to over-exploit resources today while conservingthem for future generations. The vision of SustainableDevelopment for Barbados encompasses five principles which areinextricably linked to the twin pillars of environment anddevelopment

1. These principles are quality of life, conservation of

resources, economic efficiency, equity and participation.

Full explanation of these principles are provided in thesubsequent sections. This vision can be achieved by establishinga mechanism for public participation in decision-making.

5.1 QQuality oof LLifeThe Sustainable Development paradigm recognises "quality oflife" as an overarching goal and this is seen to be composed of aconglomeration of economic, environmental, social, cultural andpersonal factors. The concept of "quality of life" introduces adifferent way of viewing the goal which has traditionally beenreferred to as "standard of living", a goal based almost solely onincreasing one's income earnings.

Generally, adequate quality of life may be taken to mean a decentliving standard for all which requires the provision of sufficientclean water, food, shelter, sanitation/sewage, health care,communication, transportation, education, security, recreationand energy.


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5.2 CConservation oof RResourcesThree broad categories of natural resources arerecognised: "critical" natural resources, non-renewable resources and renewable resources:

"Critical" natural resources arenecessary for the continuation of "lifesupport functions" for example water andair. They are key to maintaining the

integrity of ecological systems and bio-physical processes. SustainableDevelopment requires that, at the veryleast, critical natural resources should betransferred in full to future generationsbecause their role cannot be fulfilled byany other natural or anthropogenicsystem or resource, for example cleanair, uncontaminated aquifers, unpollutedsoils. Another option is that wheretechnologically possible and where it iseconomically feasible, recycling shouldbe a part of the extraction, consumptioncycle.

Non-renewable resources are those thatare eventually exhausted because therate of depletion by man exceeds the rateof natural regeneration. All fossil fuelsincluding oil and natural gas, metals andother minerals are non-renewableresources. Sustainability requires thatefficient techniques are developed forextracting, processing and using theseresources so as to extend their life aslong as possible. At the same time,investments should be made in thedevelopment of appropriate substitutesor alternatives for non-renewables sothat the dependence on non-renewablescan ultimately be suspended orterminated and a switch made to theappropriate renewable alternative in theshortest possible time frame.

Renewable resources are those thatregenerate naturally like fish stocks andtrees. These tend to be taken for grantedbecause we expect them to take care ofthemselves. A sustainable approach tothe use of renewable resources requiresthat their rate of depletion or harvest,does not exceed the rate of naturalregeneration.

Sustainable Development requires that bio-physical "limits to growth" guide the utilisation ofnatural resources and services. These limitsinclude the:



fragility and vulnerability of someecosystems

finite resilience of ecosystems to resistand recover from exploitation

limited waste assimilation capacity of thenatural environment.

It is recognised that ecosystem degradation via acascade effect can occur swiftly andunpredictably if the balance of the natural systemis tipped too far beyond its ability to compensatefor irregularities. Consequently, a Precautionary

Sustainable Development requires a societywhich is not crippled by poverty, unemployment,social unrest and crime. Social conditions are avery important component of SustainableDevelopment and of the quality of life for currentand future generations. They require strongcommunity ties, stable and supportive familystructures and a responsible and respectedpolitical system.

It is recognised that there may at times beconflict between economic development andother aspects of Sustainable Development andthat the latter are inadequately accommodated inconventional economic policy. Less emphasis isplaced on material possessions andconsumerism in a "strongly" sustainable societybut it is important to recognise that SustainableDevelopment does not mean social regression or"zero growth".

Sustainable Development allows for technicalprogress, social advancement and economicgrowth while considering bio-physical and socio-ethical limits to growth, the finiteness ofresources, the fragility of natural ecosystems,the realm of uncertainty which surrounds naturalresource use and the limits thereof, and thepossible irreversibility of impacts on the naturalenvironment. A good example of this conflict isdemonstrated in the case of exploiting non-renewable resources such as conventionalenergy resources in a sustainable way.

Promoting the concept of quality of life as aprimary indicator of social development, withpreference over income growth , will for themost part be a novel challenge in Barbados.

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The precautionary approach to fisheries management has, as its foundation, the need for foresight inrecognising and avoiding unsustainable fisheries management practices. The precautionary approach tofisheries management must be comprehensive in its scope and explicit in its preventative measures againstundesirable outcomes. Thus, there is a need for monitoring and formulation of measures to mitigate fishingpractices and externalities that may impact negatively on the fishing industry.

An integrated approach ensures that all stakeholders, such as fishermen, conservation groups and otherinterested parties, are consulted and involved. Stakeholder consultation ensures that all views and concernsare addressed, and that there is across-the-board acceptance of precautionary initiatives. Since fisheries areaffected by and affect other coastal issues and activities, the integrative approach to fisheries managementshould be considered within the broader context of the integrated coastal-area management plans.

If a management plan is to be broadly accepted, it is best to consider a range of alternatives, such as:Specifying management objectives,Specifying operational targets and constraints,Specifying the procedure to apply and adjust management measures; andProspective evaluation.

Management plan implementation involves the practicalinterpretation of objectives and procedures and theimplementation of detailed instructions for compliance,monitoring of the fishery, and enforcement tactics.

With respect to implementation, guidelines should beprovided on:

New or developing fisheries,Over-utilised fisheries,Fully utilised fisheries, andTraditional or artisanal fisheries.

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Approach and the imposition of Safe MinimumStandards are advocated for sustainableresource use. This requires resource users to erron the side of caution especially when the risksof uncertainties in using resources have adverseimplications for the supply and availability ofthese resources for current or future generations.

In essence, the precautionary approachstipulates that where there are threats of seriousor irreversible damage the lack of full scientificcertainty shall not be used as a reason forpostponing cost effective measures to preventenvironmental degradation. An illustration of thisconcept in shown in Box 1. The governmentsupports the application of the precautionaryprinciple as a policy-making strategy thatgoverns how decision-makers, in their efforts atprotecting the environment, apply science,technology and economics.

In this regard this policy seeks to encouragedecision-makers and resource managers toadopt the following principles:

BATNEEC: Best Available TechniqueNot Entailing Excessive Cost

Best refers to "the most effective techniques forminimising, preventing or rendering harmlessnoxious emissions". Since there may be morethan one "best" technique, the decision-maker is


required to perform a balancing act.

Available means that the technique must beavailable to the decision maker.

Technique means it includes both the processand the specific technology used.

Not Entailing Excessive Cost means thatprotection of the environment must be balancedalongside other tangible and non-tangible factorsincluding economic concerns. It does not relate towhether the particular decision-maker finds thecost excessive, but requires the use ofcost/benefit analysis for the process in question.

BPM: Best Practicable Means

This principle requires decision-makers to usethe best practicable means to prevent orcounteract the effects of pollution and nuisance.

BPEO: Best Practicable EnvironmentalOption

This principle establishes, for a given set ofobjectives, the option that provides the mostbenefit or the least damage to the environment asa whole, at acceptable cost, in the long term aswell as the short term.

PPP: Polluter Pays Principle

This is a key principle that requires that the cost

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Although technically a renewable resource freshwateris a limited commodity in Barbados. The UnitedNations has listed Barbados among the most waterscarce countries in the world. Many factors may behighlighted as contributing to this situation including:

Increasing demand per personIncreasing demand from a mushrooming visitorpopulationA main and pipe distribution system in dire needof rehabilitationBarbados' reliance on the natural aquifercapacity of the island's limestone cap

Freshwater is provided to domestic and commercialcustomers in Barbados at a standard fee which isintentionally low enough to ensure equity ofdistribution. The revenue generated by these lowcharges, however, fails to cover increasingoperational and maintenance costs. It can be arguedthat Government policy in the past has failed to charge appropriately for the provision of a common propertyresource subject to growing demand, the use of which generates external environmental and social costs. Theenvironmental externality of diminishing quality has been observed more frequently in recent years, and theincreasing scarcity of the resources has implications for the cost of supplying it by the Barbados WaterAuthority. Growing local and visitor consumers have no significant incentive to conserve freshwater, despitedepleting supplies, since the scarcity factor is not internalised into the market price for the commodity.

Government has sought to address these market and/or policy failures by encouraging a more efficientlyfunctioning market situation. A multi-faceted programme has been launched to, in part, meter all users offreshwater for more accurate monitoring, while a rising block tariff structure for determining water charges is toreplace the standard fee currently in existence. Revised water use fees will seek to internalise the effect ofresource scarcity on the cost of supplying the resource. Market efficiency is expected to improve withcustomers facing an economic incentive to reduce consumption and avoid high charges. Even without arevision of water use fees, it has been estimated that freshwater demand in Barbados has fallen by two milliongallons per day since the introduction of the metering programme.

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Economic efficiency requires that the use ofnatural and man-made resources should beguided by appropriate incentives. These may beguided by specific economic tools andmethodologies including monetary valuation ofresources, use of cost benefit analyses andefficient or optimal allocations of resourcesamongst various competing users. Thisapproach is aimed at ensuring that the externalenvironmental costs and external social costsfrom resource use are determined andinternalised into the cost of usage.

of preventing pollution or of minimisingenvironmental damage due to pollution will beborne by those responsible for pollution. Thepolluter should pay for the consequences of thepollution, such as compensation and clean-up.This principle will assist with the optimalallocation of limited resources.

Ecological efficiency represents one of the coreelements of Sustainable Development inBarbados. It is recognised that it is difficult toprotect every aspect of the environment foreverand so in several instances developmentdecisions will require trade-offs between socialand environmental objectives simultaneously. Inthis regard this policy aims to prevent furtheroverall deterioration of our environmental capitaland to promote enhancements which contributeto improvement in the quality of life for allpersons in Barbados.

The concept of ecological efficiency has beenintegrated to varying degrees into the decisionmaking process relating to the use andmanagement of our natural environmentalresources. There is still the need to criticallyassess and evaluate the carrying capacity of our

natural and environmental resources to reconcileresource availability with current and futuredemands. Some examples of the criticalenvironmental and natural resources inBarbados which demonstrate the need to ensureecological efficiency include water resources,fisheries resources, and tourism resources.

Case Study 1 describes briefly the example offreshwater use in Barbados from the perspectiveof ensuring continued availability of thatresource.

5.3 Economic EEfficiency

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It is essential that the estimated external costs ofa planned development or project are not foundto outweigh the projected benefits to society orindividuals. In situations where this is the case,some alternative approach for the intended goalshould be found. In all cases of natural resourceuse, it is vital to integrate sustainability criteriaas discussed in this policy paper, into thedecision making process in combination withcost benefit analysis.

The finiteness, or limited supply, of many naturalresources results in part from their exhaustiblenature which is sometimes further compoundedby the excessively high rate of depletion by man.In light of these limits it is seen as vital that theuse of natural resources occurs at optimalcapacity via a strategy which:

reduces total quantities used

maximises net output from each unit ofresource used

minimises waste generated from allaspects of resource use; and

optimises the net benefits from each unitof maximised resource used.

This strategy is expected to maximise theeconomic efficiency of resource use by ensuringthat the useful lifespan of a resource is extendedand that waste generation from resource use isminimised.

Integrating environmental concerns into theeconomic decision making process at the micro-and macro-economic levels in Barbados isessential. Barbados has demonstrated anunsatisfactory history of "economic efficiency"with regards to resource use. Emphasis hastraditionally been placed on the "direct usevalue" of resources while their indirect use,intrinsic, existence and option values for futureuse have largely been ignored.

In general, no actual economic valuation, cost-benefit analysis or determination of the mostefficient or "optimal" allocation has been carriedout for most natural resources andenvironmental services depletion in Barbados.As a result, most if not all natural resourcesremain either un- or under-valued in monetaryterms. This non- or under-valuation prohibits theoptimal allocation of resources within the"market" of current and future users. Case study2 explores the issue of quarrying in Barbadosfrom the perspective of economic efficiency.

It is proposed that economic efficiency should besought for all projected uses of naturalresources. The decision- and policy -makingprocesses should further be augmented by aconsideration of sustainability criteria asidentified in this policy.


5.3.1 EEconomic IInstruments

Economic instruments are being increasinglyrecognised as an integral tool for theachievement of Sustainable Development.Economic instruments can play a complementaryrole to conventional regulation. Indeed, someauthorities are of the view that more effectiveenvironmental management may be achievedthrough a reduction in the use of "command andcontrol" methods and an increase in economicand market-oriented approaches. Ultimately it isdesirable to have the appropriate mix ofregulations, economic instruments and non-economic valuation techniques to ensure thatenvironmental goals are met. At the same timeevery effort must be made to ensure thatdistortion of trade and investment at national andinternational levels are minimised.

For the purposes of this policy, economicinstruments are to be taken to include the costsand benefits of alternative actions (providingeconomic agents) with the effect of influencingbehaviour in a way favorable to the environment.Economic instruments may be broadly classifiedas:

charges (emission charges, productcharges, tax differentiation, etc.)

deposit-refund systems (repayablesurcharges on products, etc.)

subsidies (grants, tax allowances, etc.)

market instruments (tradeable emissionpermits, liability insurance, etc.)

financial enforcement mechanisms(performance bonds, fines, etc.)

The Government of Barbados has started toapply economic instruments, to varying degrees,within the national decision-making process. Oneillustration is provided in Box 2. Examplesinclude the environment levy, tax rebates onsolar water heaters, fines for damage caused tocoral reefs and the coastal/marine ecosystembased on proper resource evaluation, and it isproposed that planning permits for quarrying

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The Role of Science and Technology inSustainable Development

The need for significant social, environmentaland economic change becomes more explicitwhen one considers the advances that havebeen made in the areas of Science andTechnology in the last decade or so. No societyor community is untouched by the phenomenaldevelopment of science and technology.Products ranging from radios, mobile phonesand satellite communications, television,agricultural inputs and medical products can befound in the most remote communities. Theentire population faces the challenge ofbecoming more aware of science and technologyand the role it plays in Sustainable Development.

Clean Technology

The year 2001 received much attention and wasbeing touted as a year of major change when theadoption of new perceptions and attitudes wereexpected to encompass the principles of social

5.3.2 SScience && TTechnology

and economic reform.

The Government of Barbados, through theNational Council of Science and Technology(NCST), the University of the West Indies (UWI)and the Energy Division of the Ministry ofEconomic Development, has to pioneer suchparadigm shifts and has embarked on a numberof Millennium Energy Projects which areexpected to have significantly positive impactson the daily lives of Barbadians. These projectsare but a small part of Government's projectionfor the alternative energy sector, with plans onthe drawing board for a Renewable EnergyCentre that will harness the expertise andcompetencies of our scientists in an appliedmanner. It is noteworthy , therefore, that theMillennium Project will aid Government's effortsto comply with recommendations of theIntergovernmental Panel on Climate Changewhich specifies that action be taken by individualcountries to reduce their emissions ofgreenhouse gases. See Case Study 3.

Technology Transfer

The use of science and technology as a tool topromote Sustainable Development is a multi-faceted one and the objectives of the National

include a type of performance bond to ensurethe proper rehabilitation of quarries.

During the past ten years or so in order to provide virgin aggregate to the construction industry in Barbados,quarrying operations at certain points along the east coast have encroached upon adjacent beach areas andactually mined the sand dunes themselves. Remaining dunes have been scraped of stabilising vegetation bytrucks and heavy equipment. Sustainability criteria require a cost benefit analysis incorporating the presenceand magnitude of external environmental and social costs of such an activity.

The benefits of a quarrying operation are easy to identify: Reduced national dependence on material imports for the construction and building industriesOpportunities for employmentIncome generation for individuals and the countryInfrastructural improvements to surroundingareas, e.g. roads, and building equipment

In this case the external costs would include theincreased:

Damage to the integrity of the sand dunes andtheir associated vegetationSusceptibility of the coastal area to erosion andcost of litigationRisks to coastal areas posed by harsh weatherevents like hurricanesSocial discomfort from dust and noise pollution

Economic tools for evaluating benefits and costs include monetary valuations of environmental and naturalresources and cost benefit analysis. Via such methodologies, the Total Economic Value (TEV) of naturalresources is determined and shown to include not only direct use values (such as for construction aggregates),but also the indirect use value, existence, intrinsic and option values of the resource. Efforts to determineeconomic values for natural and environmental resources and the external costs of their use generatepreviously unavailable statistical data which can contribute to a more balanced and realistic cost benefitanalysis of a proposed project or development. This can be the case with quarrying in Barbados since to datewe do not have any good cost benefit data available on quarrying.

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In Barbados, gas is usually produced as associated gas from oil. While its collection and distribution costs caneasily be calculated, it is more difficult to extract the production costs for gas. Given the high costs of drillingthe average oil well in Barbados, it would seem that to drill a well purely for gas production would be veryuneconomic.

The biggest competitor to natural gas is Liquefied Petroleum Gas, LPG. However, the National PetroleumCorporation (NPC) has a mandate to sell natural gas 20% cheaper than LPG. Currently, domestic customerspay 30% less for natural gas than they would for the equivalent LPG in a 20lb bottle.

By maintaining a competitive price, development of the natural gas resource remains viable. In addition, it mayprove to be very sustainable as the sale of natural gas provides employment, provides the opportunity todevelop a local resource, saves valuable foreign exchange and is a more environmentally friendly energysource than refined crude oil products.

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Barbados is a small island developing state (SIDS)where petroleum products service 75% of our energyneeds. The production and utilisation of fossil fuelshas one of the largest human impacts on theenvironment. The emission of carbon dioxide (CO2)and other greenhouse gases is a major contributor toglobal warming and the associated problems such assea level rise and an increase in the number andintensity of hurricanes. Our main focus as a SIDSshould therefore be in the area of renewable energydevelopment and energy efficiency (to reduce energyuse), both of which will reduce the impact ofgreenhouse gas emissions on the atmosphere.

Renewable energy technologies such as burning bagasse for power and process heat at the sugar factories,solar water heaters, wind turbines and solar photovoltaic panels for electricity generation do not produce anynet greenhouse gas emissions, hence we need to encourage their use. The proposed Centre for RenewableEnergy will address the above issue. There are already over 36,000 solar water heaters operating in the islandand solar photovoltaic systems such as the 17.3 kilowatts at Harrison's Cave, 3 kilowatts at Combermereschool and 11.1 kilowatts at Skeetes Bay for ice-making have been installed. Barbados ground sugar cane fornearly three hundred years using windmills, so our wind resource is well established. The Barbados Light andPower Company has recently indicated that they are interested in participating in a 9.2 megawatt wind turbinefarm in St Lucy. Of all the fossil fuels, natural gas produces the least CO2 per unit of energy, hence our suppliesof this energy source may be exploited with the least global warming consequences. Coal has the highest CO2emissions per unit of energy and this fossil fuel also needs to be imported using foreign currency; it shouldtherefore be used as little as possible.

Currently the major energy source in the world is from fossil fuels. Renewable Energy (R.E.) produces less than25% of the total. While therefore it is desirable to use R.E. for environmental reasons Barbados as a net fuelimporter has little alternative but to use oil and gas and to develop local reserves, if we are to grow whiledeveloping R.E. technology.

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Council for Science and Technology include thedevelopment of a broader programme aimed atpopularising Sustainable Development and, in sodoing, increasing financial efficiency andproductivity in the economy. Medicine is alreadybeing transformed with advances in geneticengineering techniques and non-invasivesurgical procedures. In agriculture, pest-resistant crops can be created and desirablecharacteristics engineered into produce.Continued advances in molecular biology areexpected to result in new highly specialisedmaterials, and the applications of

nanotechnology are infinite. Furthermore,information technology will be revolutionized withadvanced video communication systems. E-commerce will create new and revamp oldindustries.

The Future of Science and Technology inSustainable Development

Barbados needs to be far more organised andcoordinated in its scientific and technologicalactivities. The concept of SustainableDevelopment entails that appropriate forms ofScience and Technology become a part of

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The 1997 Fisheries Management Plan and Act seeks to ensure the sustainable use of the eight major fishstocks harvested by Barbadian fishermen. The new regulations permit certain levels of resource utilisationaccording to the status of each fish stock and provide for the imposition of severe financial penalties forcontravention of the harvest limits established. The Fisheries Management Plan therefore aims to avoiddiscounting the total quantity and value of the fisheries resource to future generations. The Plan is based onsound analysis of the status of fish stocks and defines in detail management strategies required to ensure thepreservation and replenishment of reserves where necessary. For example, harvesting turtles is prohibitedsince all three species commonly found in Barbadian territorial waters are categorised as "threatened".Lobsters and sea urchins are "over-fished" and as such a severe harvest limit and a complete ban respectivelyhave been placed on them.

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The concept of equity needs to be applied toensure equal access for both current and futuregenerations to natural and environmental assets,services and opportunities. Many currentresource use practices explicitly and implicitly"discount" future generations and less well offsectors of society at a high rate, thus placing

5.4 Equity

them at a severe disadvantage in terms ofmaintaining an appropriate and sustainablequality of life.

The ethical and moral arguments againstimposing a high rate of discount on benefitsaccruing through "discounting" futuregenerations and social sectors are strong. Aprimary requirement for SustainableDevelopment is that all sectors of society, as wellas future generations, are afforded theopportunity for a quality of life maintained at alevel at least the same as that of currentgenerations. A local example is provided in CaseStudy 4.

The position of Barbadian society on equity isevidenced by powerful ethical and moral beliefswith regards to equality within current and futuregenerations. This is exemplified within majorgovernment policies aimed at ensuring intra- andinter-generational equity which focus on povertyeradication, providing adequate housing for alland generating employment. These policies inpart seek to establish an acceptable quality oflife for all persons and to improve the quality oflife of poor people.

Box 3 provides an example of the Educationsector and highlights efforts within that sectorwhich seek to ensure equity that spansgenerations.

Barbados has demonstrated an admirable levelof national investment in human or man-madecapital, especially in the form of institutionalstrengthening, human resource developmentprogrammes, training and education initiativesand technological research and development (forexample in the renewable energy sector). Thiskind of investment is an essential contribution toequipping future generations with the technicalskills to meet evolving challenges and obstacles.

Occurring concomitantly with the above,however, are over-exploitative behaviour andresource use practices. Implicit discountingcontinues to result from the absence ofsustainable policy approaches to naturalresource use in many sectors. It must berecalled that certain critical and non-renewable

everyday life for individuals and communities. Inorder for this to succeed, at least threeconditions must be met. First, there must besignificant expansion in the quantum anddiversity of knowledge and information availableto the population. Second, current knowledgeand information should be repackaged so thatthey become more user-friendly. Third, the modeof acquiring knowledge and information, e.g.using the ever-expanding medium of informationtechnology, should be adapted so that there ismuch greater interaction with Science andTechnology at all levels to enhance SustainableDevelopment. The study of science andtechnology should be encouraged, especially ifthe region is to capitalise on the growing globalinterest in environmental management,information technology, biotechnology and othercutting edge technologies.

The Ministry of Education, Youth Affairs and Sportshas accepted that education is the major vehicle tobring about positive, relevant changes within oursociety. To facilitate this, the initiative was taken torevamp the curriculum within the school system. Sinceequality is of paramount importance, a provision hasbeen made to improve the quality of education ofstudents with special needs. In this regard, theMinistry has adopted the motto "Each One Matters-Quality Education for All."

To ensure that education is of high quality the revisedcurriculum is a skill-based one aimed at achievingintegration within and across subject areas. The use oftechnology within all subjects is also a statedrequirement. Another feature of the new curriculum isthe renewed emphasis on the child-centeredapproach, as opposed to the teacher-centered one.This paradigm shift is aimed at producing individualswith adequate critical-thinking and problem-solvingskills.

Social and emotional learning is also embedded in all areas of the curriculum. Another of the new innovationsin the reform is the integration of cultural art forms across subject areas. Changes have also been implementedin the area of assessment. The new thrust is to ascertain the children's strengths and weaknesses at an earlystage.

This multi-faceted approach was taken to ensure that well-rounded individuals exit the school system. Thiswould benefit the nation as a whole, since persons would possess the skills, attributes and competencies whichwill allow them to function in any situation.

B O X 33 : EE D U C A T I O N TT O MM A I N T A I N AA HH I G H SS T A N D A R D OO F LL I V I N GB O X 33 : EE D U C A T I O N TT O MM A I N T A I N AA HH I G H SS T A N D A R D OO F LL I V I N G

5.5 PParticipation


For the purpose of this policy, it is recognisedthat civil society is organised into various sectorsand includes individuals, the private sector, thelabor sector, political parties, academics andother non-governmental actors andorganisations.

Public participation refers to the interactionbetween civil society and government andincludes the process by which government andcivil society open dialogue, establishpartnerships, share information, and otherwiseinteract to design, implement and evaluatedevelopment policies, projects and programmes.This process requires the genuine involvementand commitment of all interested parties,including among others, the poor andtraditionally marginalised groups in Barbados.

The importance of stakeholder participation inthe decision making process is well recognisedin Barbados. This approach was a fundamentalfeature of the compilation of the NSD Policy.Case Study 5 below expands on this experience.

Further to the above example, town hallmeetings and cross-sectoral workshops havebecome standard practice when addressingenvironmental issues in general. Consultationshave ranged in topic from biodiversityconservation to public debate on applications forindustrial developments submitted to the Townand Country Development Planning Office. It is anew requirement that applications submitted to

Of fundamental importance for SustainableDevelopment is that all major stakeholders areinvolved in the decision making process at alllevels from national and international policydevelopment to project development andimplementation for every sector and/or issue.Part of the rationale here is that socialpreferences regarding natural resource use willincorporate concerns for disadvantaged socialsectors and future generations. This has beenevidenced through town hall meetings by theTown and Country Development Planning Officeon the National Physical Development Plan andby the Ministry of Tourism and InternationalTransport with its draft policy framework onsustainable tourism.

Decision makers will be better equipped toensure that those resources are used, anddevelopments pursued, which meet the outlinedcriteria especially for quality of life and inter-/intra-generational equity, by integrating socialpreferences into the decision making process viathe participatory approach.

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natural resources are irreplaceable and non-substitutable with man-made capital. In suchcases, the equity criteria would call for aconsideration of the constraints in the utilisationof these resources so as to ensure their full or atleast partial transfer to future generations.

the Town and Country Development PlanningOffice are screened to determine a potentialrequirement for an Environmental ImpactAssessment to be conducted by the proponent.Applications deemed to have wide socio-environmental implications are subject to publicreview. Having only been recently introduced theeffectiveness of this approach cannot beproperly analysed but it has been cause formuch resistance by new applicants and foractive social debate on a number of issues.

Despite the respectable record and practice ofstakeholder participation in Barbados, the mostvital step of this practice may still be missing. Itis essential that stakeholder views actuallyinfluence Government's decisions in a significantway at every level from the development ofnational policies to the project development andexecution stages. In this regard, this policyencourages all decision makers to adopt thefollowing guidelines for facilitating genuinepublic participation in Sustainable Development:

Proactivity

Government and civil society shall takeinitiatives, in accordance with their respective

roles, to develop their maximum potential andenrich the process of decision-making forSustainable Development.

Inclusiveness

The full participation of all those interested in oraffected by Sustainable Development issues isessential to achievement of durable solutions.Special efforts shall be made by decision-makersto secure the participation of the private sector,and to create opportunities for the participation ofmarginalised groups. Box 4 provides an exampleof government policy designed to include theprecepts of public participation and public/privatesector participation.

Shared Responsibility

Government and civil society must shareequitably the commitments, burdens, andbenefits of development.

Openness

Decision-makers will endeavour to ensureinclusive and continuous participation throughoutthe process of design, implementation, andevaluation of projects, policies and programmesin order to inspire new ideas and expertise;legitimise decisions; and enrich outcomes. Thedecision-making process ought to be open andflexible to allow for the inclusion of newinformation and ideas at all phases of theprocess.

Access

In order to participate effectively, citizens musthave timely access to information, to the politicalprocess, and to the justice system.

Transparency

Productive relationships between civil societyand government require that both be moreaccountable and transparent. Transparency will

In 1996 the National Commission on Sustainable Development was established essentially as a "think tank"with the mandate to advise and guide government towards the achievement of Sustainable Development.22 volunteers representing a wide cross-section of Barbadian society including Non-GovernmentalOrganisations, Community Based Organisations, and the private sector and government departments servethe Commission. Five public consultations have been convened under the aegis of the Commission to gainin-depth and specific insight on pressing environmental issues including:

EnergyThe role of youth and communities in Sustainable DevelopmentAgricultureWater Solid waste management

The recommendations which emanated from these fora contributed to the final National SustainableDevelopment Policy. These consultations, in effect, facilitated wider social input into the policy makingprocess.

CC A SE SST U D Y 55 :A SE SST U D Y 55 :T H E NN A T I O N A L CC O M M I S S I O N OO N SS U S T A I N A B L E DD E V E L O P M E N TT H E NN A T I O N A L CC O M M I S S I O N OO N SS U S T A I N A B L E DD E V E L O P M E N T

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The Ministry of Education, Sports and Youth Affairs in 2000 formulated a National Sports Policy for Barbadosaimed at promoting "sports-for-all". It is recognised that "sports are multi-dimensional and multi-focal in natureand operate within the society to promote self-awareness, discipline, cognitive and kinetic skills at theindividual level, social interaction and co-operation amongst the different ethnic and social groups at the levelof the community and a sense of community well-being at the level of the state".

The objectives of the National Sports Policy are:the development and improvement of sportingfacilities and venuesthe promotion and fostering of competitive sportsthe training and utilisation of proficient sportsinstructorsthe co-ordination of amateur and professionalsportsthe promotion of a sports-for-all policythe development and stimulation of anappreciation and interest in sportsthe achievement of excellence and national prestigethe enhancement of national goodwill and standing within the international community

the promotion and development of sports as a productive sector of the economy

The Ministry of Education, Sports and Youth Affairs has also developed an implementation plan for the NationalSports Policy. It is anticipated that the National Sports Council, the main policy implementation agency in theMinistry of Sports, will play a leading role in the pursuit of the objectives identified by the policy. In addition, itis proposed that an Advisory Committee on Sports should be established to assist the Ministry of Sports andthe National Sports Council with effectively managing the national sports programme. Some of the proposalsof the implementation plan are:

the review and strengthening of the legal framework governing sports development;the proper maintenance of sports facilities and venues;the development of sports;the establishment of an Academy of Excellence/Resource Centre/Sports Library; the expansion of existing training programmes in sports;encouragement of greater participation by women in sports;increased public awareness and education; andfostering partnerships between the public and private sectors.

B O X 44 : MM A K I N G CC O M M U N I T Y SS P O R T S SS U S T A I N A B L E B O X 44 : MM A K I N G CC O M M U N I T Y SS P O R T S SS U S T A I N A B L E

facilitate more meaningful participation byensuring that all motivations and objectives areexplicit and that all information vital to thedecision is reliable and available in a timelymanner.

Respect

Citizen participation will be more effective and

efficient where there is assurance that, in thedecision-making process, contributions derivingfrom the implementation of various mechanismsfor participation are valued, analysed, and givenproper consideration in a timely manner.1These may be further disaggregated into the fundamental elementsof economy, equity and ecology.


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6. PPOLICYIMPLEMENTATION

Barbados' traditional approach to macroeconomicdevelopment has been typical of developing countries interms of striving to maximise economic growth. However,

despite an acknowledgment and understanding of theinterconnection and co-dependence between the goals ofenvironmental preservation, social welfare and economicdevelopment, these concerns have not to any great extent beenintegrated into the economic decision making process. This policyis intended to remedy this short-coming.

In 1999, the Ministry of Finance initiated a new approach to thedrafting of the National Strategic Plan (2000/2010), one aimed atensuring a wide range of cross-sectoral input. This is a good starttowards introducing environmental economic instruments andincentives into national macroeconomic policy but the opportunitypossibly came too late for significant environmental and socialinput.

The NSD Policy is intended to provide an integrated and holisticrepresentation of Barbados' goals with regards to SustainableDevelopment, and to articulate specific recommendations forpolicy within a range of sectors, all aimed at fostering NationalSustainable Development. The various actors, stakeholders andinterest groups are required to translate these principles andrecommendations into concrete action through plans,programmes and projects.


6.1 RRecommendations

I. The overarching policy recommendation is that the coreprinciples of Sustainable Development shall inform all levels ofnational decision-making at the sectoral, organisational andindividual levels. These principles are:

1. "Quality of life", comprising a variety of economic, social,cultural and personal factors that go beyond mere incomeearnings, is endorsed as the overarching goal.

2. Bio-physical "limits to growth" are taken into considerationwhen decisions are made with regards to resource use.These limits include the:



fragility and vulnerability of some ecosystems

finite resilience of ecosystems in resisting andrecovering from man's impacts as well as naturaldisasters

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limited waste assimilation capacity ofthe natural environment

Natural resources are not to be exploitedto a degree which inhibits the ability offuture generations to meet their ownneeds. As such the PrecautionaryPrinciple and the imposition of SafeMinimum Standards with regards tonatural and environmental resource useare supported.

3. Economic tools and methodologies suchas monetary valuation of natural andenvironmental resources, cost benefitanalysis and the internalisation of externalenvironmental costs, play an increasinglyimportant role in the decision makingprocess with regards to natural andenvironmental resource use,notwithstanding considerations ofconstraints on sustainability.

4. All sectors of society as well as futuregenerations are provided with an equitableopportunity to ensure that their ownstandard of living is maintained at a levelat least the same as current generationsor better. This is to be achieved in part byensuring that the core concepts ofSustainable Development are upheld withregards to natural and environmentalresource use and social developmentplans.

5. All major stakeholders in civil society areinvolved in the decision making process atevery level from project development andimplementation to national and

international policy development for everysector an/or issue.

II. The NCSD shall be responsible for monitoringthe implementation of this policy.

III. The NCSD shall formulate appropriate criteriafor the evaluation, assessment and review ofthe implementation of this policy at thesectoral, corporate, and individual levels,including the formulation of a plan of actionand incorporation of the use of indicators ofSustainable Development in measuring ourprogress towards achieving SustainableDevelopment. See Box 5.

IV. The NCSD shall formulate an appropriatepublic awareness and education strategy forsensitising all decision-makers,organisations, and individuals to the nationalprinciples of Sustainable Development with a

Indicators are policy instruments that enable us to have informed decision making through theuse of extensive data collection. The use of Indicators of Sustainable Development will helpdecision-makers, technicians and the public at large to focus on the issue of SustainableDevelopment by monitoring progress towards sustainability in three major areas: human well-being, ecological welfare and sustainable interactions (including issues such as genderempowerment, economic development, communication and transport).

In effect, using indicators of Sustainable Development will assist decision-makers in determininghow far Barbados has progressed in the pursuit of our Sustainable Development goal. Theindicators will allow us to make comparisons with other countries (spatial comparison) and withdifferent time periods (temporal comparison). The indicators may be used to assist with thepreparation of national state of the environment reports that give a snap-shot of the health of ourenvironment. Ultimately it is anticipated that indicators of Sustainable Development will informnational accounting systems.

Barbados currently has a National Indicators Programme where indicators of SustainableDevelopment for Barbados have been developed under the three major areas of human well-being, ecological welfare and sustainable interactions. At present 170 indicators have beenidentified, of which approximately 65 are environmental. These indicators are currently beingtested and should assist with the monitoring and evaluation of the implementation of thepolicy.

B O X 55 : II N D I C A T O R S OO F SS U S T A I N A B L E DD E V E L O P M E N TB O X 55 : II N D I C A T O R S OO F SS U S T A I N A B L E DD E V E L O P M E N T

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view to incorporating them into the decision-making process.

V. The government, as a partner in the pursuitof Sustainable Development, endeavours to:

1. Information

Create and/or strengthen existing formaland informal communication mechanismsto encourage information sharing,collaboration and cooperation within andamong civil society groups, and betweenall levels of government and civil society.

2. Legal framework

Create, expand and implement theappropriate enabling legal and regulatoryframeworks for Sustainable Development.The legislative framework should besufficiently flexible to include acombination of measures such ascommand and control, economic andmarket instruments, voluntary compliance,etc.

The legal framework should also ensurethe participation of civil society inSustainable Development decisions byensuring the inclusion of provisions in newand existing laws that guarantee timelyaccess to information, process and justice,and when necessary eliminateimpediments to public participation.

The legal framework should bestrengthened to resolve issues andconflicts relating to environment anddevelopment. The legislation shouldencourage the use of non-adversarial andnon-judicial dispute resolutionmechanisms. These mechanisms mayinclude negotiation, mediation, facilitationand arbitration. Consideration should begiven to widening the powers of theOmbudsman or to the establishment of aParliamentary Commission of Environmentto assume jurisdiction for resolving issuesbetween environment and development.

3. Institutional Changes

Develop and support institutionalstructures, policies and procedures thatpromote and facilitate interaction inSustainable Development decisions withinall levels of government and civil society,and encourage change within existinginstitutions to pursue a basis for long-termdialogue and innovative solutions.

4. Capacity Building

Develop and strengthen the capacity ofindividuals to participate in SustainableDevelopment decision-making with anincreased base of knowledge (local,traditional and technical) of SustainableDevelopment issues and publicparticipation practices.

5. Resources

Procure and expand resources (financial,human, and technological) to initiate,strengthen, and continue participatorypractices in decision-making forSustainable Development.

6. Access

Create, strengthen, and support formaland informal opportunities andmechanisms for public participation indiscussion of and decison-making inSustainable Development activities.

VI. Civil Society including the business sector,non-governmental organisations, andcommunity based organisations as partnersin the pursuit of Sustainable Developmentare required to adopt and implement thenational principles of SustainableDevelopment as outlined by this policy. Civilsociety is also required to incorporate theseprinciples within their organisational actionplans, strategies and programmes.


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