THE ENVIRONMENT IN THE PEACE PROCESS
THE MULTILATERAL TRACK
Of the five subjects chosen for deliberation within the framework of the
multilateral peace talkswater, economic development, arms control,
refugee rehabilitation and environmentthe latter may well have the
greatest potential to fulfill the objectives of the talks, namely, the
creation of confidence-building measures among the parties. The underlying
reasons for this are clear:
- Pollution knows no political borders. The trend today is to create
global or regional frameworks for environmental cooperation.
International experience in drafting and implementing conventions for
the prevention of transboundary pollution can be applied to the
Middle East as well.
- Sustainable development ranks high on the global agenda and the
search for solutions to environmental problems is of major concern
both globally and regionally. Public and political awareness of the
subject is on a rise. Middle Eastern states now recognize that the
receipt of development aid from the West is largely contingent on
environmental protection measures.
- Environmental cooperation can be developed gradually, in stages,
without immediate recourse to binding treaties. Cooperation can move
from joint research to the setting of guidelines for development to
the creation of common organizational frameworks and the signing of
environmental conventions that are then reflected in national
legislation.
- Among the issues raised at the multilateral peace talks, the
environment is the least controversial. Environmental quality elicits
few conflicts and serves common objectives of environmental
improvement and pollution prevention. Generally, it does not deal
with territorial problems, does not touch upon issues of national
sovereignty, and does not involve competition over scarce resources.
It does, on the other hand, serve objectives which elicit almost
complete consensus of opinion and which are designed to bestow common
benefits and prevent mutual damage.
- A basis for environmental cooperation between Israel and its
neighbors has been in existence for over 15 years within the
framework of the Mediterranean Action Plan. In addition, meetings
between Israeli and Arab scientists have taken place over the past
decade in various research frameworks.
The Working Group on the Environment
Under the chairmanship of Japan, co-sponsorship of the USA and Russia, and
co-organization of the European Union, the Working Group on the
Environment already has several achievements to its credit. Some 40
delegations as well as representatives of the United Nations and the World
Bank have convened six times over the past two and a half yearsin Tokyo,
the Hague, Cairo and Bahrain to identify common problems and search
together for common solutions.
Potential areas for cooperation have largely been identified according to
the following criteria:
- High priority subjects which are common to all regional parties, such
as sewage and solid waste treatment. Special emphasis is accorded to
professional capacity building for all parties involved, and
particularly the Palestinians.
- Environmental problems with transboundary impact, such as air or
marine pollution.
- Subjects which are better served by regional cooperation than by
individual national action. This is especially important in managing
resources shared by several countries, such as the Gulf of Eilat.
- Realms in which joint action can complement and advance the
development plans of individual states.
During the course of both formal sessions of the Working Group on the
Environment and intersessional meetings, several subjects were identified
for cooperation, including marine pollution control, desertification,
coastal management, waste treatment, sewage treatment, environmental
impact assessment, environmental education and environmental monitoring.
Of these, several have already been developed into concrete regional
projects, specifically emergency treatment of oil pollution in the upper
Gulf of Aqaba, regional cooperation in combating desertification and an
environmental code of conduct for the Middle East.
Upper Gulf of Aqaba Oil Spill Contingency Project
The Gulf of Aqaba boasts unique landscape and ecological assets, both in
the marine environment (coral reefs) and on land (desert landscapes). The
region's temperate climate, spectacular coral reefs and breathtaking
vistas attract tourists and nature lovers from all over the world. Yet,
this ecologically fragile region is endangered by intensive development
and industrial activity. Aqaba serves as Jordan's only outlet into the sea
and Eilat as Israel's gateway to the East. Both ports handle such cargoes
as fuel, phosphates and other chemicals. Accidental oil or chemical spills
are liable to cause major damage to the unique marine environment and,
consequently, to the burgeoning tourism industry as well. The threat is
especially severe since the major development plans for the regionin
Israel, Jordan and Egyptare largely based on tourist development.
Recognition of the need to organize regionally to prevent marine pollution
as a result of accidents or mishaps and to deal quickly and efficiently
with such pollution when it occurs dates back to the early days of the
multilateral peace talks on the environment. Since the Tokyo meeting of
May 1992, the parties have recognized that the sensitivity of the region,
the risk of spills, and the inadequate combat capabilities make the need
for oil spill contingency arrangements in the upper Gulf of Aqaba
mandatory.
Today, the protection of the Gulf of Aqaba's fragile ecosystem is no
longer a mere dream. With the aid of the European Union, which has
spearheaded the Aqaba project, an expert team from Israel, Jordan and
Egypt, aided by a European consultancy company, has formulated a joint
action program based on the establishment of three oil-spill combating
centers. Each of the centersin Aqaba (Jordan), Eilat (Israel) and Nueiba
(Egypt)will be adequately equipped to deal with small and medium-size
oil spills (less than 200 tons). Together, the centers will cooperate to
minimize damages in case of large-scale oil pollution.
The project is envisioned as a four-phase plan. The preparatory stage,
including formulation of the project and the principles of operation, was
completed in October 1994. The second phase, dealing with the
establishment of oil spill centers in the three areas is to be implemented
during the course of 1995. The remaining two phases of the project will
see the formulation and establishment of a regional contingency plan
(based on national contingency plans) and the implementation and operation
of the regional plan (through the procurement of additional equipment and
related training and exercises).
A project steering committee has been established which includes
representatives of the three parties and the European Commission. In
addition to guiding the establishment of the three centers, the steering
committee will be used for mutual discussions among the parties on
relevant issues, such as: ad hoc support between the centers in a spill
situation, joint drills and exercises, notification and communication
procedures between the parties, updating of sensitivity mapping, coastal
developments which may relate to oil spill risks, research and studies on
technical feasibility and environmental impact of the use of chemical
dispersants, and preventive measures.
It is envisaged that the oil spill centers will be operational in the
beginning of 1996. Israel has already allocated half a million dollars for
additional equipment in its existing pollution control and response center
in Eilat while the European Union and Japan have committed themselves to
establishing and equipping the oil spill centers in Aqaba and Nueiba.
The parties are now ready to embark on early implementation of joint
regional activities such as training, communication links and alert
procedures, with the first training course scheduled for Eilat in April
1995. Indubitably the Upper Gulf of Aqaba Oil Spill Contingency Plan may
well serve as a model for the formulation and implementation of other
cooperative projects in the region. Israel now looks forward to the
initiation of an integrated comprehensive plan for the sustainable
development of the entire Gulf region with special emphasis on the
prevention of environmental damages, guidelines for regional development,
and research and monitoring of the Gulf ecosystem.
Combating Desertification
During the past 25 years, increased cultivation of marginal lands and poor
management of rangelands have contributed to serious erosion problems and
to the degradation of about 130 million hectares in the Middle East. About
35 percent of the region's cultivated area experiences annual soil erosion
of between 5 and 50 tons per hectare. Recognition of the need to address
the problems of natural resource degradation and desertification is now
emerging throughout the Middle East.
Regional cooperation on combating desertification was first proposed by
the Israeli delegation at the second meeting of the Working Group on the
Environment convened in the Hague in October 1992. The proposal was
endorsed by a majority of the participating states and, under the
leadership of the World Bank, has steadily progressed toward
implementation.
Following a mission to the area, the World Bank submitted a proposal for
collaboration to control natural resource degradation and desertification
in the Middle East to the Cairo meeting of the Working Group on the
Environment in November 1993. The proposal was subsequently approved in
the April 1994 session in the Hague. The action plan calls for the
establishment of five regional thematic centers in each of the
participating sides: a center on germplasm adapted to arid conditions in
Egypt; a center on recycled and brackish water use and management of
water-degraded soils in Tunisia; a center on rangeland and livestock
management in Jordan; a center on afforestation and orchards in Israel;
and a Palestinian center for professional training in all these areas. For
each theme, the focus will be on the application of existing research
results and the adoption of cost effective and environmentally sustainable
technologies. The approach will be holistic and will be based on
collaborative networking focusing on information, training and technology
sharing, identification of investment opportunities, and establishment of
pilot projects in each area.
At its most recent meeting in Bahrain in October 1994, the Working Group
on the Environment endorsed the UN's proposal to launch a subregional
desertification project in the Arava Valley. Participants endorsed the
idea that the Desertification Initiative could be the key subregional
activity to launch the new United Nations Desertification Convention in
this region.
Israel, with its limited resources, has already pledged to support the
Desertification Initiative, offering to share its experience with its
neighbors, to conduct intersessional seminars and workshops, and to open
its advanced desert research studies to students from all the
participating countries. Such cooperation, utilizing the technology and
experience accumulated in each of the countries, may not only help combat
desertification but serve as a catalyst for cooperation on sustainable
development in the entire region.
Environmental Code of Conduct
Perhaps the best illustration that the time is ripe for the establishment
of cooperative frameworks for environmental protection in the Middle East
is the Bahrain Environmental Code of Conduct. The code was first proposed
by the Japanese delegation in May 1993; it became a reality in October
1994 when all 41 delegations to the Working Group on the Environment in
Bahrainincluding Israel, the Palestinians, Jordan, Egypt, Oman,
Bahrain, Kuwait, Saudi Arabia, Qatar, Yemen, Morocco, Tunisia and
Algeriaunanimously approved the code. In order to avoid protracted
legal discussion, it was decided that the code of conduct would be binding
morally, but not legally.
The Bahrain Environmental Code of Conduct for the Middle East identifies
the major environmental issues for regional cooperation and the means
which are to be taken to ensure this cooperation. It sets common
guidelines and norms which will govern the development policies of each
state in a manner that will not adversely impact the environment of
neighboring countries. It thus helps define the future direction of
environmental programs and legislation and serves as a basis for research
and scientific development.
The code is meant to help all parties work together against the common
threats to their quality of life and the environment dwindling
resources, pollution, desertification, and rapid urban developmentwhile
protecting the ecological uniqueness and ensuring the balanced and
sustainable utilization of regional ground, water and air resources. It
reflects the new spirit of determination to work together for a better
environment at the dawn of what promises to be a new era of peace.
On the Road to Further Cooperation
The Upper Gulf of Aqaba Oil Spill Contingency Project, the Desertification
Initiative and the recently-adopted Bahrain Environmental Code of Conduct
for the Middle East clearly demonstrate that where there is shared
interest and commitment by the regional parties, and where there is a
devoted sponsor, concrete progress is achievable. Based on this positive
experience, the parties to the Working Group on the Environment have
fervently committed themselves to the advancement of additional priority
subjects for cooperation within the context of intersessional meetings.
Such joint seminars and workshops have proved vital for capacity building,
know-how, training, and mutual understanding. They have made it possible
for professionals from the region to meet and to discuss state-of-the-art
technologies and methods for the protection and monitoring of the
environment. They have served as effective forums for the exchange of
information and experience and have created a common ground for future
cooperation.
A case in point is the Canadian initiative on environmental impact
assessment (EIA). At the May 1993 meeting of the Multilateral Working
Group on the Environment in Tokyo, Canada proposed the dispatch of a
mission to review EIA needs and capabilities in Jordan, the West Bank and
Gaza, Israel and Egypt. The Canadian report, prepared following the visit
of the Canadian delegation to the region, included several recommendations
to the Working Group on the Environment, inter alia: creation of a Middle
East Environmental Impact Assessment Forum; development of means to deal
with transboundary issues in EIA; EIA training courses for senior
administrators and practitioners focusing initially on water resource
development, infrastructure and waste disposal projects; and development
of EIA training expertise in the region.
Within less than a year, some of the recommendations are already reaching
the implementation stage. An EIA workshop was convened in Canada in June
1994, immediately following the International Association for Impact
Assessment Conference. In November 1994, within the framework of the
Multilateral Working Groups on Water Resources and on the Environment, an
Environmental Impact Assessment Training Course was convened in Cairo with
the participation of delegations from Egypt, Jordan, the Palestinians and
Israel and representatives from Morocco, Tunisia, Oman and Saudi Arabia.
Its aim: to provide the necessary methodological and practical tools to
those working on EIA systems.
Environmental impact assessment has been in operation in Israel for more
than twelve years and has proven itself as an essential tool for sound
environmental management. As the Middle East enters an era of peace and
rapid development, environmental impact assessment will become doubly
important. In line with the Canadian initiative, Israel has proposed that
the EIA recommendations be further strengthened to include the
establishment of mechanisms for consultation, review and decision making
on transboundary impacts; the incorporation of EIA into activities
sponsored jointly by the parties in the region; the provision of guidance
and assistance to the parties in establishing and operating EIA systems by
means of an international network of expertise; and the development of
adequate information technology to support EIA data needs including the
use of satellite imagery and geographical information systems. Adequate
institutional frameworks and professional capacity building are mandatory
in order to ensure that development is carried out in a sustainable manner
for the benefit of all people in the region.
Lack of space precludes a detailed examination of the many subjects
currently on the agenda for future cooperation in such areas as sewage
treatment, solid waste management, environmental education, pesticide
control, and environmental monitoring and measurement. Intersessional
workshops and seminars have been sponsored by Japan, the USA, the European
Union, the World Bank, Egypt, Canada, Italy and China in these and other
subjects. For example, a June 1994 meeting of the Working Groups on Water
Resources and the Environment witnessed a joint statement of the core
parties of the Middle East multilateral peace process on sewage treatment
for small communities. The operative sections of the statement relate to
the establishment of guidelines for the Middle East in the field of sewage
purification and reuse and the establishment of demonstration plants in
specific sites to further study and examine the proper methods to be used
for sewage purification and reuse. Another example relates to one of the
newest initiatives in the field of environmental health and pesticide
control. A USA- sponsored workshop, convened in Cairo in December 1994,
brought together technical experts from the Middle East and the USA to
discuss a proposal for a collaborative program of technical
communications, health sciences research and training, and health
evaluation of agricultural chemicals in the Middle East. The proposal aims
to better define the extent of adverse effects on health in the Middle
East region, promote the safe use of agricultural chemicals and assure
effective pesticide management practices.
Intersessional meetings have been instrumental in increasing the spirit of
cooperation and advancing professional training and capability in various
subjects which are of high priority to the Middle East. Hopefully, they
will serve as stepping stones toward the implementation of concrete
projects designed to bring about common solutions to shared environmental
problems in the region. Hopefully, they will help ensure that the fragile
natural resources of the Middle East are preserved for the benefit of both
present and future generations.