Development and Implementation of the Swaziland Environment Action Plan (SEAP)

Development and Implementation of the Swaziland Environment Action Plan (SEAP). By Dr Irma A. Allen Presented at the MELISSA Program's KERN Forum Meeting from 12 to 14 April 2000 in Kampala, Uganda.

(This document originates from http://www.melissa.org/English/publications/Proceedings2000/swaziland2000.htm)

INTRODUCTION

Swaziland is a small country surrounded by South Africa and Mozambique. Its land area is 17,364 square kilometers, of which only about 9% to 10% is suitable for agriculture and 80% to 90% for grazing. About 6% consists of settlements and 4% is protected areas, mostly nature reserves. Within this small area, Swaziland has a great variation of landscape, geology, and climate. Swaziland also lies within the Maputoland center with reputedly contains the greatest biodiversity in southern Africa.

Currently, the population of Swaziland is estimated to be roughly a million, but it is growing at a high rate of approximately 3.2% per year. Currently about 47% of the population is under 15 years of age, indicating a high dependency ratio, and a continuing high population growth in the future. 75% of the population lives in rural areas, but migration from the rural to urban areas is occurring at a fairly fast rate of between 3% and 5% per annum.

Unfortunately, the rapid population growth, industrialization, urbanization, increasing agricultural demand, one of the highest stocking densities in Africa and a declining economy are among the factors which are fast degrading the rich natural resources base and posing a threat to sustainable development.

The major environment problems of the country, as identified in the Swaziland Environment Action Plan are:

Land degradation due to overstocking and deterioration of grazing areas.
Soil erosion and loss of fertility Rapid urbanization rate and unplanned settlements
Water pollution, primarily due to industrialization and agricultural chemicals Loss of biodiversity, primarily as a result of afforestation.

INITIAL STEPS TOWARDS INSTITUTIONALIZING ENVIRONMENTAL MANAGEMENT

In the late 1980s, the Swaziland Government became increasingly concerned about the deterioration of the natural resource base and the associated economic loss. Severe droughts in 1981/82 and in 1991/92 added greatly to the existing environmental problems. Thus, the need to take urgent action to protect the environment and to conserve natural resources became clearly evident. Although environmental management was being conducted on a sectoral basis, the need for better resources management was apparent. In 1987, with assistance from the UNEP, a study, culminating with a national seminar, was conducted and a recommendation to establish a national environmental authority was made.

In 1992, with assistance from the United Nations Development Programme (UNDP), Swaziland went through a systematic process to develop a country paper, "Ensuring Our Future", for the United Nations Conference on Environment and Development (the Earth Summit). This document contained a description of the country’s environment, its environmental problems and a vision for a better future. Later, in response to the country’s growing awareness of the need to take definite steps to protect its environment, and in line with the recommendations of the Earth summit, the Swaziland Government created the Swaziland Environment Authority (SEA) through an Act of Parliament (The Swaziland Environment Act No 51) in October 1992, with the following responsibilities:

Promote the development of policies, legislation and enforcement mechanisms for sound environmental management,
Coordinate the activities of all bodies concerned with environmental matters and serve as a liaison between the national and international organizations on environmental matters,
Monitor trends on the state of the environment including the regulation of development throughout the country,
Conduct and promote research and public awareness on environmental matters.

The Swaziland Environmental Authority became operational in 1993. Currently, it is based at the Ministry of Tourism, Environment and Communication, and is composed of a Governing Body and a Secretariat. The Governing body is appointed by the Minister responsible for Environment and consists of eight Principal Secretaries, four members of NGOs and four members of the public. The Secretariat is appointed in accordance with Civil Service procedures. It consists of a Director and 5 other members. The Director serves as a non-voting secretary to the Governing body. However, a new Environment Management Bill has been developed and is being processed, with the intention of making the SEA a corporate body in the future.

DEVELOPMENT OF THE SWAZILAND ENVIRONMENT ACTON PLAN (SEAP)

In November 1995, concerned about its environmental problems, recognizing the important role which sound environmental management plays in the course of Swaziland’s development and wishing to honour Swaziland’s commitment to help alleviate the global environmental crisis through the implementation of Agenda 21, the Swaziland Government, with assistance for the UNDP, embarked on the preparation of the Swaziland Environment Acton Plan (SEAP). This step was an initial major effort to ensure systematic integration of environmental concerns into the national development planning process.

The Swaziland Environment Authority facilitated the development of the SEAP over an 18-month period. A participatory approach, involving all sector and levels of the Swaziland community, was used and included the following activities:

Study and review of relevant documents
Public awareness campaign on the SEAP process
Focus group meetings with relevant stakeholders, e.g. farmers, women’s groups, teachers, decision-makers, local authorities, and parliamentarians
Two series of regional workshops, one to collect inputs and the other to review the Plan
Two national workshops, on to collect inputs, an the other to review the Plan
Six technical working groups with a combined membership of about 80 people meeting regularly and providing input in the areas of Biodiversity, Water and Climate, Infrastructure and Energy, Land Resources, Industry, Manufacturing and Tourism, and Human Settlement and Health
Three cross-sectoral technical working groups, involving more than 30 people to provide input in the areas of Economic and Social Issues, Policy, Legal and Institutional Issues and in Public Participation and Education
A synthesis task force to advise on the format of the document and to assist with the compilation and editing
Facilitation of the process by a National Coordinator, two short consultancies and the participation of every member of the SEA in the process

The Swaziland Environment Action Plan consists of two main volumes:

Volume 1 – The Environment Action Plan. This is the main report. It included the overall state of the environment, infrastructure for environmental management, major environment problems and recommended solutions. It also included the implementation plan (a medium term plan for implementing recommended strategies to address major environmental issues and problems) and implementation and monitoring strategies.

Volume 2 – The Policy and Strategy Framework. This volume provides policy ad strategy basis for the medium term Environment Action Plan (Volume 1). This is a framework, presented in a hierarchical manner, which provides a holistic perspective and a meaningful basis for development of all kinds of national policies to ensure sustainable development. In addition, the document includes a comprehensive list of strategies proposed for environmental management.

The SEAP was first approved buy the SEA Board and the submitted to Cabinet, who in turn approved it in August 1997. It is now an official document of the Government of Swaziland. In the foreword of the document, the Minister of Tourism, Environment and Communications state the following:

"The SEAP is Swaziland’s first comprehensive distillation of lessons and thoughts on environment and development form a national perspective encompassing the need for definition of policies and action plans, their implementation strategies, monitoring and regular review…"

THE SEAP OBJECTIVES

The Swaziland Environment Action Plan provides a framework within which Swaziland’s environment can be managed in a sound and sustainable manner. Central to the definition of this framework is the recognition of the cross-sectoral nature of our environmental problems, the identification of relationships which exist between the environment and key sectors within the overall macro-economic framework, and the need for active and lasting community involvement and participation in environmental protection and natural resource management.

The objectives of the SEAP are as follows:

Provide a state-of knowledge overview of the environmental conditions in the country, Identify, prioritize and where possible quantify environmental problems
Propose solutions to immediate environmental problems in the form of programs and projects, and institutional and legislative reforms, with consideration of their funding requirements and their human resource/capacity-building needs
Establish a clear indication of government’s priority areas with respect to the environment so as to guide and give proper orientation to donor intervention in this field
Establish a framework which provides coherent direction for the process of environmental monitoring and action planning in the future, and Provide a framework for continuous development and environmental policy dialogue within the country and with donor partners

SEAP Strategies

The SEAP document lays out a number of important strategies, basic to shaping environmental policy, strategy and management. These include:

Harmonization of legislation
Use of environment guidelines and procedures
Environmental impact assessments
Market-based mechanisms
Formulation of sectoral policies and strategies
Emphasis on environmental education and public awareness

SEAP IMPLEMENTATION MECHANISM

An implementation strategy and plan were developed as an integral part of the SEAP. In it, the Swaziland Environment Authority was identified as the statutory body responsible for implementation. The environment issues and problems which were identified, were prioritized with the intention of focusing attention on essentials actions that need to be taken over the next five years in order to ensure sustainable development. These priorities and activities were organised under five Program Areas. These are:

Capacity building for effective environment management
Environmental education, public awareness and participation
Management and use of biodiversity
Resource use for increased productivity
Waste management, pollution control and environmental health

Each Program Area has its own goals, and provides a list of specific activities, which need to be undertaken within the next five years in order to achieve its goals.

A Program Implementation Committee (PIC) facilitates each program area, and each PIC reports to a national SEAP Steering Committee, composed of the chairpersons of the five PICs and chaired by the SEA Executive Director.

THE RELATIONSHIP OF SEAP TO THE NATIONAL DEVELOPMENT STRATEGY

The SEAP development process began shortly after the Ministry of Economic Planning and Development (MEPD), the Ministry responsible for formulating, coordinating, implementing and monitoring development planning, had initiated a process to develop a National Development Strategy (NDS) for Swaziland to guide its development in the long term.

The National Development Strategy provides a long-term outlook (25 years) for the country’s development. It identifies three major frameworks, eight strategic macro-policy areas, several macro economic policy issues, several macro-economic policy reforms and many more sectoral-level reforms. The NDS process was facilitated by the MEDP and based on extensive consultations. It provides the basis for lower level development planning as well as serving as a guide for Government’s Economic and Social Reform Agenda (ESRA), a program which is supervised buy the Prime Minister’s Office. The Vision for Swaziland, according to the new National Development Strategy is as follows:

"By the year 2022, the Kingdom of Swaziland will be in the top 10% of the medium human development group of countries, founded on sustainable economic development, social justice and political stability."

The NDS states that underlying the vision is a focus on the quality of life in the country,. And that "the critical dimensions of the quality of life are poverty eradication, employment creation, gender equality, social integration and environmental protection."

The NDS was completed in 1998 and launched in 1999. Its implementation has not begun. The SEAP was completed in 1997 and work on quite a few of its recommendations began even before the document was completed. Thus there has been considerable progress towards the SEAP implementation. Since the NDS and the SEAP processes were taking place simultaneously, special efforts were made to link the two through consultation and participation in meetings. The result is that the two documents are complementary and in agreement.

The NDS does address the environment, identifying environmental management as one of the eight key macro-policy areas, and emphasizing the importance of equitable use of resources. In addition, the document makes it clear that environment cuts across all sectors. The NDS included major environmental issues identified in the SEAP, such as soil erosion, deforestation, waste disposal and industrial and urban pollution. It stresses the importance of a healthy environment, especially for the rural populations. The NDS also points out the Government’s commitment to environmental management as demonstrated by the creation of the Swaziland Environment Authority in 1992, the Environmental Impact Assessment regulation o 1996 and the SEAP in 1997, as well as being signatory to various international environmental agreements, conventions an protocols.

Even though it is clear that the recommendations of the SEAP were taken into consideration in the preparation of the NDS, the integration of an environmental dimension throughout all sectors is not strong enough and quite a lot of work still needs to be done, such as addressing potential environmental implications of economic policies.

PROGRESS OF SEAP IMPLEMENTATION

Since the SEAP was approved and adopted in August 1997, some of the milestones which have been achieved, or which are in the process of being achieved include those following:

Institutional arrangements

Five Program Implementation Committees, under supervision and guidance form the SEA, were established and have been operational since January 1999. These committees coordinate and help oversee the implementation of specific activities in their respective Program Areas of the SEAP. In addition, communication links with the District Environment committees formed during the development of the SEAP, are being strengthened.

Policies

In response to the recommendations of the SEAP for the formulation of much needed policy and of specific policy reforms, the following has been accomplished:

A National Land Policy ahs been drafted and is being debate within Cabinet and the Swaziland National council. This activity is being undertaken by the Ministry of Natural Resources and Energy
A National Environment Policy has been developed by SEA with assistance from the Department of International Development (DFID) in the UK. It has be circulated, discussed, approved by the SEA Board and is currently awaiting approval form Cabinet
A Forestry Policy is currently being formulated by the forestry Department of the Ministry of Agriculture with assistance from the Danish Agency for Cooperation in Environment and Development (DANCED)
The development of and Energy Policy is being initiated by the Ministry of Natural Resources and Energy, also with assistance from DANCED

The last three policy development initiatives are being supervised by the SEA to ensure that the outcomes are consistent with the SEAP recommendations.

Strategies and New Action Plans

As recommended in the SEAP, the following Strategies and Action Plans have been developed with the guidance of the Program Implementation Committees. They still have to be officially adopted by Government:

A National Biodiversity Strategy and Action Plan (with assistance from GEF)
A National Environmental Education Strategy (with assistance from DFID)

In addition, a National Waste Management Strategy is in the process of being developed.

Legislative framework

Regulations on Environmental Impact Assessment are in place and operational. EIAs are now mandatory for all development projects. The Regulations were published in 1996 and reviewed in 1998 to include the concept of Strategic Environmental Assessment. This means now that all major programs and policies will be subjected to the Strategic Environmental Assessment. This new initiative begins with the Strategic Environmental Assessment of the NDS before the NDS becomes operational.

The Swaziland Environment Authority Act (1992) which created the SEA has been revised and a new Environment Management Bill will be tabled before parliament before the end of this year (1999). The proposed Bill will transform the SEA into a corporate body, establishes a framework for environmental protection and the integrated management of natural resources on a sustainable basis. It also provides for the establishment of an Environment Fund.

Regulations on Solid Waste Management, Water Pollution, Air and Noise Pollution have been developed but are not yet operational, pending the approval of the new Environmental Management Bill and the new Water Resources Management Bill by Parliament.

Individual Capacity Building

All the activities above represent steps in capacity building for sustainable development. However not only is attention being given to building institutional, policy and legal capacity, but opportunities are being sought and taken to build individual capacity. Following are some examples of this type of endeavour:

SEA staff and some members of the SEP Program Implementation Committees are being trained on the job and also through short courses and degree programs
Study tours have been organized for SEA staff and for some members of the Program Implementation Committees
Planners in key Ministries are receiving training on natural resources accounting and are being involved in developing economic indicators
Teachers form different levels re receiving EE training workshops with the assistance of local NGOs

LESSONS LEARNED

Many valuable lessons have been learned in the development, and now in the implementation of the SEAP. These can be used to guide future steps for sustainable development. Some of these lessons include the following:

The participatory nature of the SEAP process has very positive impacts, and served many purposes. It was a learning experience where methodologies to raise awareness were tried and tested, and where information was collected, analyzed and utilized to gain knowledge of environmental issues. It was also a building experience, where the knowledge and experiences of individuals, organizations and departments were pooled to build a more holistic picture of Swaziland’s environment. It was an exercise in cooperation and collaboration, where everyone’s participation was invited and welcomed. It was also an exercise in understanding and tolerance, where controversial issues were raised and differing viewpoints were presented and reconciled. All these various activities during the process added to the collective knowledge, brought people together and built support for the implementation of the SEAP.
The SEA, a statutory body established before the SEAP, is undertaking the preparation and implementation of the SEAP. This provides a firm base for the SEAP and an orderly and quick transition from development to implementation.
The sourcing of funds from other donor financed activities e.g. the Contention to Combat Desertification, Poverty Alleviation Program of the Department for International Development (DFID), the European Union and DANCED to finance the implementation of the SEAP had enabled a quick start on SEAP implementation.
The small size of the country has made it relatively easy to coordinate activities. The network set up during the development of the SEAP continues to be used to coordinate activities and to build support.
The use of existing structures, e.g. the National Environmental Education Program, the involvement of District authorities and NGOs in both the development and implementation of the SEAP, enriches the process.
The use of a decentralized approach by involving the Districts in the consultation process stimulated the interest of the District authorities to participate the environment management.
Swaziland has a rich environmental indigenous knowledge system. Drawing form it for the development of the SEAP and in policy formulation has been very meaningful and useful.

FUTURE ACTIVITIES

Some of the initiatives which lie immediately ahead include the following:

Continuation of the implementation of the SEAP, with the assistance of the Program Implementation Committees
The preparation of a Program Support Document to use as a framework for action and for obtaining funds for the major priorities of the SEAP (These have been broken down into priority areas for the next five years by the Program Implementation Committees)
Transformation of the Swaziland Environment Authority into a corporate body within the next few years
The establishment of the Swaziland Environment Fund
Further Strategic Environmental Assessment of the National Development Strategy to ensure that environment and economic development are integrated in future development planning
The introduction of an environmental economic program, parallel to the SEAP implementation, in order to balance and harmonize environment and economic issues
The development of Local Environmental Actions Plans (LEAPS)

A very positive development during this evolution of environmental management in Swaziland is the increase in awareness and participation, which has taken place. A growing number of people, from different sections and places in Swaziland have become involved in environmental activities, e.g. working on District committees, or on Program Implementation Committees, or writing environmental articles, or planning an Environmental Education Conference, or developing policy, or writing project proposals, or working with a school conservation club, or organizing clean-up campaigns, or discussing environmental issues with decision makers.

It is in recognition of the valuable role of the individual and collective efforts that the Swaziland Environment Authority will continue to give high priority to increasing environmental awareness in all parts of the country, to maintaining a constant dialogue with all government and non governmental stakeholders, and to nurturing the active participating of the entire Swaziland community in environmental management.