20 June 1997
ENGLISH ONLY
UNITED NATIONS FRAMEWORK CONVENTION ON CLIMATE CHANGE
SUBSIDIARY BODY FOR IMPLEMENTATION
Sixth session
Bonn, 28 July - 5 August 1997
Item 10 of the provisional agenda
MECHANISMS FOR CONSULTATIONS WITH
NON-GOVERNMENTAL
ORGANIZATIONS
Note by the
secretariat
1. At its third session, the Subsidiary Body for Scientific and
Technological Advice (SBSTA) requested the secretariat of the United
Nations Framework Convention on Climate
Change (UNFCCC) to conduct further consultations with
non-governmental
organizations (NGOs) with a view to improving existing
consultative processes
(FCCCC/SBSTA/1996/13, para. 50 (d). The secretariat enlisted the
help of the Global Environment Information Centre (GEIC)* last year
to carry out such consultations on its behalf, with clear guidance
from it, and produce a report thereon.
2. In the light of its consultations with non-governmental
organizations, the GEIC has prepared the attached report entitled
"NGO Consultative Mechanisms with the United Nations Framework
Convention on Climate Change (UNFCCC)". This report was the principal
input to the secretariat's paper (FCCC/SBI/1997/14). However, the
secretariat has exercised its judgment in drawing upon the range of
proposals contained therein and has supplemented it by some further
exchanges and consultations with non-governmental
representatives.
3. In accordance with the procedure for miscellaneous documents,
the report is reproduced in the language in which it was received and
without formal editing.
FCCC/SBI/1997/MISC.6
GE.97-
________________________
* The GEIC is a centre of the United Nations University and the
Environment Agency of Japan based in Tokyo.
NGO Consultative Mechanisms with the
United Nations Framework Convention on
Climate Change (UNFCCC)
Report by the Global Environment Information
Centre
TERMS OF REFERENCE
The Global Environment Information Centre (GEIC), a centre
of the United Nations University (UNU) and the Environment Agency of
Japan,(1) undertook to prepare a paper
on "NGO Consultative Mechanisms with the United Nations Framework
Convention on Climate Change (UNFCCC)" at the request of the UNFCCC
secretariat. The paper will support the secretariat's preparations
for a paper to be submitted to the Subsidiary Body for Implementation
(SBI) at its sixth session scheduled from 28 July - 5 August 1997 in
Bonn, Germany.
The report is based on the review of workshop reports,
submissions from and consultations with NGOs. A list of suggested NGO
contacts were attached to the terms of reference by the secretariat;
all were contacted, and the vast majority consulted.
The main issues of the paper are:
(i) identification of existing processes/mechanisms for
involving NGOs within the UNFCCC;
(ii) whether the processes/mechanisms are felt to be
sufficient;
(iii) what can be done to improve existing
processes/mechanisms, and whether there is a need for a new
consultative mechanism;
(iv) proposals/options.
INTRODUCTION
Discussion of NGO participation under the UNFCCC takes
place within a broader discussion of the role and contribution to
international processes of "major groups" under
Agenda 21, of which NGOs form a part (Chapter 27). The
Secretary-General's report on Chapters 23-32 of Agenda 21
demonstrates the extent to which "major groups" participate in the
implementing and monitoring of the broader agenda of sustainable
development. Action based on partnerships and involvement of major
groups opens up a wider political sphere for the participation of
social and economic actors, and constitutes a "bottom-up" source of
strength.
Chapter 27 of Agenda 21 provides a basis for actions to
better involve NGOs in international processes. It states that "[T]he
UN system, including finance and development agencies, and all
intergovernmental organizations and forums should, in consultation
with non-governmental organizations take measures
to:
Review and report on ways of enhancing existing procedures
and mechanisms by which NGOs contribute to policy design,
decision-making, implementation and evaluation at the individual
agency levels, in inter-agency discussions and in United Nations
conferences;
On the basis of the above, enhance existing or, where they
do not exist, establish mechanisms and procedures within each agency
to draw on the expertise and views of
non-governmental organizations in policy and programme
design, implementation and evaluation."
In this light, reference is also made to ECOSOC and its
initiation of a general review of arrangements for consultation with
NGOs in 1993 (Resolution 1993/80 July 1993), together with its
recently adopted conclusions (Resolution 1996/31 July 1996) calling
"upon the governing bodies of the relevant organizations, bodies and
specialized agencies of the
United Nations system to examine the principles relating
to their consultations with
non-governmental organizations and to take action, as
appropriate, to promote coherence in the light of the provisions of
the present resolution."
For the purposes of this paper, the term NGO is defined to
include those organizations accredited as non-governmental observers
to the UNFCCC.
The impetus for a consultative mechanism for NGOs within
the framework of the UNFCCC arose out of a proposal by one Party for
a "business consultative mechanism" at one of the sessions of the
Intergovernmental Negotiating Conference (INC). COP 1 took a decision
(6/C.1, annex III) requesting SBSTA to convene a workshop to discuss
"the need for, and possible scope, structure, membership and work
plans of, non-governmental advisory committees and/or a business
consultative mechanism" and to report to COP2. SBSTA in turn
requested the secretariat to organise a "workshop on non-governmental
inputs, as foreseen in the work programme of SBSTA, in cooperation
with interested Parties and organizations" (FCCC/SBSTA/1995/3, para.
41).
The workshop on consultative mechanisms for
non-governmental organization input to the UNFCCC (the Workshop) took
place on 2 March 1996 at which three main NGO constituencies were
represented: (1) business and industry; (2) municipal leaders and
local authorities; and (3) environmental NGOs. Full text of the
papers presented at the workshop plenary and the rapporteurs'
summaries of separate sessions of the constituency groupings are
contained in FCCC/SBSTA/1996/MISC.2 and FCCC/SBSTA/1996/11.
After reviewing the Workshop results, SBSTA requested the
UNFCCC secretariat to prepare a paper on this subject at a future
session (see document FCCC/SBI/1997/14 and Add.1).
EXISTING MECHANISMS/PROCESSES FOR NGO
CONSULTATION/
PARTICIPATION WITHIN THE UNFCCC
The existing mechanisms and processes for NGO
consultation/participation between the UNFCCC and NGOs may be grouped
as follows:
Existing General Mechanisms
Access to Information
The UNFCCC secretariat continues to provide information to
NGOs for their use. In addition, formal and informal meetings are
organised between NGOs and the secretariat. Documents continue to be
provided at meetings.
Access to the Floor
Access to the floor by NGOs is presently confined to
before and after meetings, with some additional scope for access
within subsidiary bodies.
Right of Intervention
NGOs are given a right of intervention in the form of
group statements. These statements are generally permitted at the end
of plenary sessions, of approximately 5 minutes' duration
each.
Access to Workshops and other
Meetings
There are a number of workshops organised alongside the
formal meetings of the UNFCCC bodies which are organized by NGOs and
the secretariat among other organizations.
Existing Institutional Mechanisms
Institutional mechanisms which provide for NGO
consultation/participation could be stated as
follows:
Rules of Procedure
Article 7(6) UNFCCC lays out the general requirements for
observer status of non-governmental organizations "qualified in
matters covered by the Convention". Detailed rules of procedure
regarding the admission and participation of observers are explicitly
left for adoption by the CoP. Draft rules provide that, on the
invitation of the President of the CoP, observers may participate
without the right to vote in the proceedings of any session in
matters of direct concern to the body. (Rules referred to below
represent draft rules).
The Bureau of the COP's policy on NGO access on the floor
is that NGO representatives are allowed on the conference room floor
before and after the meetings, but not during the meetings. The
Bureau has agreed to allow wider access to be granted at the
discretion of the Chairman of each subsidiary body, "in the specific
context of a given body." In current practice, the discretion of the
Chairman is central to allowing or disallowing the extent of
participation of NGOs.
The COP
Meetings of the COP are held in public (Rule 30(1)) with
observers entitled to make statements at the end of the session. NGO
representatives may also be nominated by Parties as members of their
delegations. At least three Parties have involved NGO representatives
as part of their delegations. During the negotiation of the UNFCCC,
one Party, in particular, reserved three places on its delegation for
representatives of: (i) provincial governments;
(ii) environmental groups; and (iii) business and industry
groups.
Subsidiary Bodies
Rule 2(8) defines subsidiary body to mean "those bodies
established by Articles 9 [SBSTA] and 10 [SBI], as well as any body,
including committees and working groups, established pursuant to
Article 7(2)(i) of the Convention". Article 7(2)(i) empowers the COP
to "[e]stablish such subsidiary bodies as are deemed necessary for
the implementation of the Convention" which thus far comprise AGBM
and AG13. Under the rules of procedure, subsidiary bodies meet in
private (Rule 30(2)) which in the practice of the UNFCCC means that
duly accredited observers are permitted to
participate.
In the case of SBSTA, the Chairman has proved responsive
to NGO involvement. Currently, three chairs are occupied respectively
by representatives of the business and industry, local government,
and environment NGO constituencies. The question of who represents
their individual constituency is for the groups themselves to decide.
If agreement cannot be reached, then the seat may remain empty. In
the case of other subsidiary bodies, examples of NGO involvement do
exist. NGOs have been asked to make formal inputs on a particular
issue for AG13 (see FCCC/AG13/1996/MISC.2), while the Chairman of
AGBM recently allowed a NGO to present a statement from the floor in
the middle of a session. However, NGOs have previously been excluded
from certain meetings, such as "non-groups", "contact groups" and
"informal informals", depending on the agenda and the discretion of
the Chairman of the responsible Body.
IPCC
The IPCC is not a body of the UNFCCC but is independently
established by the World Meteorological Organization and the United
Nations Environment Programme to (1) make periodic assessments of the
science, impacts and the socio-economic aspects of climate change and
of the adaptation/mitigation options available to address it and (2)
provide, on request, scientific, technical and socio-economic
information including comparable methodologies to the Conference of
the Parties to the UNFCCC and its bodies.
The official link between the UNFCCC and IPCC outside of
Article 21 of the UNFCCC on Interim Arrangements, is manifested in
the requests by SBSTA (and AGBM) to the IPCC for information in the
form of scientific and technical reports, assessments,
elaborations/clarifications and methodologies such as the IPCC
Guidelines for National Greenhouse Gas Inventories. There are also
joint working group meetings of officers of the UNFCCC and of its
secretariat and the officers of the IPCC. In addition, provision was
made in the 1996-1997 budget of the UNFCCC by the secretariat for
financial support to the IPCC and this may continue in the 1998-1999
biennium.
The IPCC is currently examining how to enhance NGO inputs
in its activities. At present, experts from the NGO community
participate in writing, reviewing, synthesizing, and finalizing the
IPCC reports and technical papers. In its proposed work on technology
assessment and technology transfer before and for its Third
Assessment, the IPCC is endeavouring to engage experts from industry
groups also.
NGOs are admitted as observers to the meetings of the IPCC
and its Working Groups. They have access to the floor at all times
during these meetings.
ARE THESE PROCESSES/MECHANISMS
SUFFICIENT?
The vast majority of NGOs consulted feel that current
processes/mechanisms for soliciting NGO inputs within the UNFCCC
process require strengthening.
WHAT CAN BE DONE TO IMPROVE EXISTING
PROCESSES/MECHANISMS, AND WHETHER THERE IS A NEED FOR A NEW
CONSULTATIVE MECHANISM
I. Business and Industry NGOs
Business and industry NGOs support the creation of
a formal mechanism which can support the effective implementation of
the UNFCCC. Consensus among business and industry on principles
pertaining to a Business Consultative Mechanism (BCM) was achieved
through the efforts of multiple business and industry NGOs, and
presented at the Workshop.
Business Consultative
Mechanism
The essential thrust of the BCM proposal is to
provide a vehicle for communication, additional needed information,
and exchange of views as a supplementary or additional means of
facilitating communication between business and industry NGOs and the
institutional bodies of the UNFCCC. The BCM would be a formally
recognized, but informal group, organized and managed by business and
industry NGOs.
Business and industry NGOs are adamant that any
business and industry consultative mechanism that may be created
"would complement, not supplant, national or other international
input mechanisms" (Annex I to FCCC/SBSTA/1996/11). Similarly, a
number of business and industry NGOs themselves do not view the BCM
as an exclusive mechanism that would preclude additional inputs
direct from business and industry NGOs, and that there should be a
continued ability for other groups to provide input in their own
right as separate entities with special interests. However, business
and industry NGOs believe that one mechanism involving the three
constituencies is neither feasible nor desirable, and that each
constituency has relevant expertise which could add to the
effectiveness of the process.
General consensus does exist among business and
industry NGOs on the basic principles of a BCM, as evidenced in the
Workshop proceedings and confirmed by subsequent consultations. The
principles for a BCM for the UNFCCC are that a BCM should:
(i) provide business with convenient, direct and
effective additional channel of communication;
(ii) further enable business to both volunteer
information to and respond to questions from, all bodies established
under the UNFCCC in a timely manner;
(iii) further enable business to provide
information to all of Parties and intergovernmental organizations
participating in the UNFCCC process;
(iv) further enable business to provide its views
on the full range (policy, socio-economic, technological, etc.) of
issues being addressed by the UNFCCC;
(v) be open to all business NGOs accredited by the
UNFCCC process who wish to participate;
(vi) be able to convey the full range of business
positions on an unfiltered basis;
(vii) not be a process for negotiation of
commitments from business, or for the selection of technology
"winners and losers;"
(viii) be an addition to, not a replacement for,
existing or new business consultation at the national or
international level;
(ix) be treated by the UNFCCC process in a manner
comparable to all other NGO consultative mechanisms in terms of
access to administrative support, including funding for participants
from developing nations; and
(x) be subject to and consistent with national and
regional anti-trust and competition laws and
regulations.
Some business and industry NGO representatives
have suggested that the BCM could largely run on the world wide web,
facilitating the flow of information, and work to enhance the use of
existing resources. Some business and industry groups place stress on
the expertise which, for example, a world wide web or electronic mail
BCM facility could provide to Parties in situ, and for those States
not readily able to attend all of the meetings under the UNFCCC.
Further, it is felt by some the strengthening of the IPCC does not
fully address concerns to provide input into broader processes beyond
mere technical information/expertise.
Many business and industry NGOs have suggested the
nomination of a single focal point (perhaps the ICC) for contact with
the secretariat on relevant issues, who would then distribute
requests/documentation to interested business and industry NGOs for
response/comment. The BCM would respond to any possible requests from
Parties and Convention bodies through the
secretariat.
With regard to face-to-face meetings, regarding
which there is no general consensus, several business and industry
NGOs have suggested the following basic
principles:
(i) governments and representatives of accredited
business and industry NGOs would have a regularly scheduled open
meeting at each session of the relevant bodies;
(ii) this forum would not be a subsidiary nor an
ad hoc body of the UNFCCC and would not be represented on any
institutional charts of the organization of the UNFCCC;
(iii) other NGOs would have observer status to any
such meetings but not a place on the floor;
(iv) proceedings would be recorded with an
official report to official meetings of, for example, SBSTA, SBI or
the COP;
(v) efforts would be made to ensure equitable
geographic distribution among the participants;
and
(vi) it would be up to individual business and
industry groups to decide whether they wished to
participate.
Business and industry NGOs believe that any BCM
that may be created should be flexible, open-ended and transparent.
It seems important to most business and industry NGOs that there be
no filtering of information provided through such a
mechanism.
Strengthening Existing
Processes/Mechanisms
In addition to general support for the creation of
a formal mechanism which can support the effective implementation of
the UNFCCC, there is general consensus among business and industry
NGOs regarding the desirability of strengthening existing NGO input
processes/mechanisms. Business and industry NGOs have made the
following particular suggestions regarding the strengthening of
existing bodies and processes within the UNFCCC:
Improved flows of information
Business and industry NGOs see the processes of
information flows as a vital element of their participation in the
successful implementation of the UNFCCC. As part of this, speedy
dissemination of documents and improved access to documents
distributed on the floor should be ensured by the secretariat.
Business and industry NGOs have noted with appreciation, however, the
efforts of the secretariat in improving the situation of
late.
One business and industry NGO suggested that, in
line with the secretariat improving the information flows, one list
of attendees be made by the secretariat after the meeting, listing
only those persons who collected badges. It was suggested that this
would allow for a better reflection on which NGOs are actually
attending the meetings and actively participating in the process.
Further it was also suggested that different coloured badges be
provided for the different types of NGO constituencies for the
purposes of avoiding confusion among NGOs; in particular, one colour
for groups concerned with business and industry issues, and a
different colour for those groups more concerned with environmental
issues.
Facilitating NGO inputs
A further suggestion from several business and
industry NGOs is that COP should direct the secretariat to invite
business and industry NGOs to comment on issues (whenever governments
are invited to present views) and to circulate any comments from
industry to governments via a miscellaneous
document.
II. Local Government NGOs
Local government NGOs wish to be "effective
strategic partners with their national governments, the CoP, and its
subsidiary bodies" in addressing climate change issues.
Local government NGOs prefer the strengthening of
existing mechanisms/processes rather than the creation of new
additional ones. They are of the opinion that all presently existing
"input mechanisms" should be open and maximized for participation. If
new mechanisms were to be considered, then they should be:
(i) open to the participation of existing and
proposed bodies by all accredited NGOs; and
(ii) ensure parity between the different NGO
constituencies.
At the Workshop, local government NGOs sought
special status for local government organizations. Local government
NGOs state that the COP should authorize a special modality, based on
Rule 61 adopted by the General Assembly during its 50th session, that
enables local authorities - through their accredited international
associations - to participate on a non-voting basis in the COP and
its Subsidiary Bodies in order to facilitate the flow of information
and experience from local authorities to the COP on matters relating
to reductions of greenhouse-gas emissions and local adaption to a
changed climate.
In particular, local government NGOs consider that
they have hands-on experience with implementing innovative policies
and measures to reduce GHG emissions, and feel that they can assist
Parties in assessing and monitoring emissions. Further, education and
raising public awareness (as provided for in Article 6 UNFCCC) are
also in the sphere of their responsibility.
In strengthening mechanisms, there is the
suggestion that local government NGOs be designated as official
reporting units by the COP and for COP/ICLEI cooperation in defining
a common methodology that includes local government NGO inputs. The
avoidance of double-counting in national inventories, as well as the
desire for explicit recognition of the local government NGO
contribution to securing abatement of greenhouse gases, remain
motivating factors. Emphasis is also given by local government NGOs
to the variety of financing mechanisms that have been developed by
local governments, and that pro-active participation by local
governments will assist the Parties in meeting their commitments.
Local government NGOs stress that a consultation
process distinct from "Technical Advisory Panels" is explicitly
sought. It is felt that the process of implementing the UNFCCC
requires a broader range of inputs than simply technical
inputs.
Improved access to information, in particular
documents distributed on the floor, remains a key concern. In broader
terms, local government NGOs feel that mechanisms to promote
communication to support the implementation of the UNFCCC is
important. ICLEI is launching information services that can provide
technical and scientific advice from LGOs. Further, ICLEI's Cities
for Climate Protection World Wide Web site provides examples of local
efforts in climate protection and energy efficiency worldwide. A
database of quantified emissions and emission reductions is being
developed.
The ability to intervene at the end of sessions,
though welcomed, could more usefully provide for interventions on
issues of specific relevance to local government NGOs.
III. Environmental NGOs
In examining consultative mechanisms under the
UNFCCC, environmental NGOs ask a fundamental question: does the
creation of any mechanism further the ultimate objective of the
Framework Convention on Climate Change as set forth in Article 2 of
the Convention? The view of most environmental NGOs is that no new or
additional input consultative mechanism/process is needed from the
perspective of achieving the Article 2 objective.
However, it was recognized by environmental NGOs
that a common input process operating via the world wide web could be
"extremely valuable", provided that participation of developing
country NGOs for whom e-mail/internet access remains rarer, is
ensured. In promoting transparency, environmental NGOs suggest that
information flows could allow for NGOs to view, possibly comment on,
or at least make reference to, each others' contributions so as to
promote parity, while allowing each to state views, positions and
provide inputs.
Nevertheless, the enhancement and deepening of
existing input mechanisms/processes is advocated by environmental
NGOs. More specifically, the positions of a number of environmental
NGOs focus on the following (in no particular
order):
Enabling better access to the Floor and capacity
to intervene
Environmental NGOs seek the ability to intervene
from the floor on specific agenda items when requested to do so by
the Chairman as, for example, in the Commission on Sustainable
Development, Montreal Protocol and IPCC Plenaries. It is argued that
the present practice of a 5 minute intervention at the end of the
session after decisions are taken does little to enhance dialogue.
Guidelines should be developed to enable better access, including
provision for timely intervention and reprimanding individual
representatives, rather than all NGO constituencies, for
inappropriate behaviour should it occur.
Seeking formal inputs to agenda
items
The secretariat may wish to solicit the views of
NGOs on specific agenda items which could be added to official
reports in a miscellaneous documents section, for example. A
precedent is provided by the AG13 questionnaire, circulated to
intergovernmental and non-governmental bodies as well as to States
Parties (see FCCC/AG13/1996/MISC.2).
One NGO has suggested that the participation of
the three constituencies extend beyond the procedural privilege of
intervention at meetings to consultation regarding agenda-setting for
informal workshops and other activities.
Improved information
dissemination
Improved information dissemination is seen as one
of the major factors in strengthening existing mechanisms/processes.
Environmental NGOs seek fast and easy access to documents prior to
meetings, and access to draft negotiating documents during sessions.
In particular, the role of the world wide web and electronic mail is
seen as key. Environmental NGOs stress the need for the secretariat
to consider putting official documents on hyper-text marked language
(html) on the world wide web (in addition to adobe portable document
format (pdf)), as well as develop an electronic mailing list for fast
forwarding of documents. Recent efforts being made by the secretariat
are appreciated in this regard.
During sessions, access to draft negotiating
documents is seen as imperative for NGOs to follow discussions.
Further, it was suggested for pigeon holes for every delegation and
NGO constituency be put in place to keep information
flowing.
Facilitating NGO inputs
Environmental NGOs suggest that the secretariat
incorporate and facilitate NGO involvement and inputs in the
information processes of the UNFCCC. It would be constructive, for
example, that the secretariat undertake both formal and informal
soliciting of inputs from NGOs on relevant issues. In particular, NGO
inputs could be undertaken by electronic mail which may facilitate
the involvement of and inputs from NGOs for consideration by the
secretariat.
As mechanisms which would trigger such a
processes, with regard to formal requests for inputs, it is suggested
that COP should direct the secretariat to invite the views of
environmental NGOs on issues whenever governments are invited to
present views and to circulate any comments to governments via a
miscellaneous document.
With regard to informal requests for inputs, it is
suggested that the secretariat could seek the views of environmental
NGOs on a range of issues as and when appropriate in the opinion of
the secretariat. The request for inputs could be undertaken via
electronic mail as an effective means of undertaking such an exercise
in order to assist the secretariat in becoming more fully aware of
the range of issues and interests at stake.
National communications
As organizations that can assist in promoting a
more transparent process, environmental NGOs feel that they need to
be more involved in the process of establishing guidelines for the
national communications. Further, once guidelines are established,
environmental NGOs could be invited to participate in the national
reporting teams, conducting monitoring and reporting as appropriate.
It is also felt by environmental NGOs that a
formal mechanism for input into the review of national communications
with governments and the secretariat could be facilitated. In respect
of non-Annex I communications, it is suggested that environmental
NGOs should be invited to participate in national capacity building
programmes.
NGOs on national delegations
There are examples of Parties including NGO
representatives in their delegations. Environmental NGOs promote and
commend this practice by member States. Overall, environmental NGOs
feel that this should become common practice and that they should be
given the opportunity to be included in national delegations.
Demonstration projects
Environmental NGOs argue for a level playing field
in all respects. As one example, they argue that access to GEF
funding (NGO funds presently limited to $50,000) should be opened up
to all NGOs for the implementation of demonstration projects which
work to reduce GHG emissions at the national
level.
Policy Dialogue Forum
A few environmental NGOs consider that there is a
strong need for Policy Dialogue Forums, based on a round-table
approach, open to delegates, members of NGOs, and members of
intergovernmental organizations, participating in their personal
capacities. The purpose would be to provide an opportunity for
discussion of policy options in a transparent and de-politicized
forum so as to consider the optimum policies that may be available.
The forum agenda and schedule should be driven and supported by the
secretariat. One example cited was the organisation of thematic
workshops, scheduled so as not to conflict with official meetings,
before, during or after regularly scheduled meetings of UNFCCC
bodies.
A related proposal by one environmental NGO was
that time needs to be set aside so that small groups of 5-8 people,
each from different regions can exchange, at a personal level, their
experience and perspective of a problem as it affects them. Again,
the secretariat could assist in running the
sessions.
Other constituencies
Increasingly, there are organizations which feel
that they do not readily fit within the existing three identified
constituency groupings.
Procedurally, this was reflected at the end of COP
2 where two organizations were afforded the opportunity to make
separate statements. In some cases, depending on the issue, such
groups are willing to participate within existing groupings. However,
the view has been expressed by these organizations that on certain
issues they may contribute an additional dimension which requires
special consideration.
One NGO, on similar lines with a suggestion by
environmental NGOs, stated the need for a Policy Dialogue Forum
(PDF). It is suggested that a number of such PDFs on various issues
of policy be organized by the secretariat as appropriate. It is felt
that a Chairman be appointed by the secretariat for each Fora, with
the responsibility to ensure that equal time be given to the various
groups to speak. As an output of these Fora, a 3-4 page summary paper
for each Forum could be produced and distributed to all delegates and
observers.
In the future, it is perceived that categorizing
groups may become increasingly difficult as, inter alia, agriculture,
trade, development and other NGOs join the process.
PROPOSALS/OPTIONS
As judged from responses and consultations with
the NGOs, some proposals/options may be as follows:
Strengthening existing
mechanisms
There is consensus among all groups that existing
input mechanisms/processes need to be strengthened. These include:
- improved and speedier access to information and
documents;
- improved access to the floor and enhanced rights
to intervene;
- soliciting inputs from NGOs on specific issues
by the secretariat.
Transparent communication mechanisms which work to
enhance the process and information flows could be considered.
Without filtering information received from NGO constituencies on
various issues, the secretariat could act as a guardian/facilitator
to the process. If any meetings arise as a result, then a record of
the meeting would need to be kept.
Facilitating NGO inputs
The secretariat may consider both formal and
informal mechanisms for soliciting inputs from NGOs on relevant
issues.
As mechanisms which would trigger NGO input
processes, with regard to formal requests for inputs, it is suggested
that COP could direct the secretariat to invite the views of NGOs on
issues whenever governments are invited to present views and to
circulate any comments to governments via a miscellaneous document. A
precedent is provided by the AG13 questionnaire, circulated to
intergovernmental and non-governmental bodies as well as to States
Parties (see FCCC/AG13/1996/MISC.2).
With regard to informal requests for inputs, it is
suggested that the secretariat could seek the views of NGOs on a
range of issues as and when appropriate in the opinion of the
secretariat, including for the purposes of agenda setting. Such an
exercise could be
undertaken to assist the secretariat in becoming
more fully aware of the range of issues and interests at stake. The
invitation to and response by NGOs could be disseminated via post,
electronic mail, and/or the world wide web.
Focal points for each of the main NGO
constituencies and other constituencies could be nominated by the
NGOs in question, to whom the secretariat could direct its request
for inputs. The focal point would then be responsible for
distributing the request/information among the constituencies'
networks as appropriate for response/comment.
The secretariat should also consider a more
transparent operation of its related information services, including
CC:INFO, CC:INFO/Web, CC:TRAIN, and CC:FORUM. The CC:INFO/Web sites
could include an optional NGO component. NGO involvement, inputs and
information should be actively pursued and incorporated in available
information, including CC:INFO. For these and other purposes, a
listserv could be set up for accredited NGOs to the UNFCCC process
for open discussion and exchange of views at the initiative of the
secretariat, as well as for fast distribution of new documents.
National Communications
Many environmental and local government NGOs feel
that they need to be more involved in the process of national
communications. In particular, these NGOs wish to be involved in
establishing and reviewing IPCC guidelines for National Greenhouse
Gas Inventories.
With regard to these guidelines, local government
NGOs seek to define a common methodology that includes local
government NGO inputs. The avoidance of double-counting in national
inventories, as well as the desire for recognition of the local
government NGO contribution to securing abatement of greenhouse
gases, remain motivating factors. Emphasis is also given by local
government NGOs to the variety of financing mechanisms that have been
developed by local governments, and that pro-active participation by
local governments will assist the Parties in meeting their
commitments.
It is also felt by environmental NGOs that a
formal mechanism for input into the review of national communications
with governments and the secretariat could be facilitated. In respect
of non-Annex I communications, it is suggested that environmental
NGOs should be invited to participate in national capacity building
programmes. Further, once guidelines are established, environmental
NGOs have suggested that they could be invited by governments to
participate in the national reporting teams, conducting monitoring
and reporting as appropriate.
Policy Dialogue Forum
A number of NGOs consider that there is a strong
need for a Policy Dialogue Forum. These Forums would be open to all
delegates, members of NGOs, and members of intergovernmental
organizations, participating in their personal capacities. The
purpose would be to provide an opportunity for discussion of policy
options in a transparent and de-politicized forum so as to consider
the optimum policies that may be available.
It is felt that a Chairman for each Policy
Dialogue Forum would need to be appointed by the secretariat, with
the responsibility to ensure that equal time be given to the various
groups to speak during the Policy Dialogue Forum. As an output, a 3-4
page summary paper for each Policy Dialogue Forum could be produced
and distributed to all delegates and observers as a non-paper. The
agenda and schedule would best be driven and supported by the
secretariat. The secretariat may seek inputs from NGOs for
agenda-setting purposes. One possibility cited was the organization
of thematic Policy Dialogue Forums, scheduled so as not to conflict
with official meetings, before, during or after regularly scheduled
meetings of UNFCCC bodies.
Access to the Floor
Many NGOs seek improved access to the floor and
enhanced rights to intervene. The secretariat should consider
developing guidelines on access to the floor and interventions by
NGOs during the COP and sessions of Subsidiary Bodies for
consideration by the Parties. This is particularly of concern to
NGOs, as current practices differ and change without prior notice. As
one suggestion, requests for intervention from NGOs in a particular
session could be called for and received prior to or at the beginning
of the session in question. The requests for intervention could then
be dealt with by the Chairman of the session at his/her discretion on
a first-in first-serve basis only where there is sufficient time to
receive the interventions, or at a time when the Chairman feels that
a particular issue deserves input/comment from the NGO constituencies
in question. An appropriate time to receive interventions may be
after hearing presentations from delegates. Parity among the NGO
groups regarding interventions should serve as a rule, and it is felt
by most that individuals or individual NGOs should be reprimanded for
inappropriate behaviour (if any), rather than whole NGO
constituencies.
NGO representation on National
Delegations
The practice of a number of Parties who include
NGO representatives in their delegations is commended and promoted by
many NGOs. Most support the notion that this practice become a common
practice among all Parties in future meetings of the COP and its
Subsidiary Bodies. As such, while depending on the country and the
NGO itself, many NGOs feel that they should be given the opportunity
to be included in national delegations.
Financial Mechanism(s)
Consideration may be given to the development of
an appropriate financial mechanism, such as a trust fund for NGO
participation from developing nations (analogous to the existing
trust fund for developing state Party participation) generated and
administered by the secretariat for, and to ensure the participation
of, developing country NGO representatives (an apparent particular
concern of environmental NGOs). Should it be required, for the
purposes of developing a funding proposal, and at the secretariat's
request, environmental NGO groups are prepared to provide inputs
concerning appropriate criteria and mechanisms needed thereon.
Other issues
There is an apparent need for further reflection
on the issue of NGO categorization, particularly within the NGO
groupings. Accurate categorization of groups could be used to enhance
greater participation of NGOs in the processes of the convention. It
was suggested that categorization could extend to identifying NGOs
according to their interest in participating in the UNFCCC process,
type of membership, and financing available so as to allow delegates
and others a better understanding of NGO representation, abilities
and participation. Effective categorization may support the
participation of additional and other NGOs, including increased
participation of all sectors of business, industry, labour and
agriculture NGOs from both Annex I and non-Annex I
Parties.
- - - - -
draft - cbc 20 June 1997 @ 1600
1. GEIC is a centre of the
United Nations University and the Environment Agency of Japan based
in Tokyo (http://www.geic.or.jp).