The Government's Environmental Policy and the State of The

Summary in English: Report No. 21 (2004–2005) to the Storting

The Government’s Environmental Policy and the State of the Environment in Norway

Translation from the Norwegian. For information only.

Table of Contents

1 Environmental status 2005 . . . . . 5 7 Hazardous substances...... 26 1.1 A shared global responsibility . . . . . 5 7.1 Goals ...... 26 1.2 The state of the environment in 7.2 Policy instruments and measures . 26 Norway ...... 5 1.3 The path forward ...... 10 8 Waste management and recovery ...... 27 2 Key priorities of Norwegian 8.1 Goals ...... 27 environmental policy ...... 12 8.2 Policy instruments and measures . 27 2.1 Halting the loss of biodiversity . . . . 12 2.2 Developing a more ambitious 9 Climate change, air pollution and climate policy ...... 13 noise ...... 28 2.3 Reducing NOx emissions in 9.1 Climate ...... 28 accordance with the Gothenburg 9.2 Depletion of the ozone layer...... 29 Protocol ...... 13 9.3 Long-range air pollution ...... 29 2.4 Halting emissions of 9.4 Local air quality ...... 30 environmentally hazardous 9.5 Noise ...... 31 substances...... 14 2.5 Improving waste management 10 International environmental and increasing waste recovery . . . . 15 cooperation, environmental 2.6 Developing environmental assistance, and environmental policy at local level ...... 15 protection in the polar regions . 32 2.7 Moving to sustainable production 10.1 EU/EEA environmental legislation 32 and consumption ...... 16 10.2 International environmental 2.8 Focusing on environmental bodies ...... 32 technologies ...... 17 10.3 International agreements with 2.9 Greening public procurement. . . . . 18 implications for the environment . . 33 2.10 Developing a knowledge-based 10.4 Bilateral and regional environmental policy ...... 19 environmental cooperation ...... 33 10.5 Environmental protection in 3 Conservation and sustainable the polar regions ...... 34 use of biological diversity ...... 21 3.1 Goals ...... 21 11 Regional planning and land-use 3.2 Policy instruments and measures . 21 policy ...... 36 11.1 Goals ...... 36 4 Outdoor recreation ...... 23 11.2 Land-use management in areas 4.1 Goals ...... 23 designated as agricultural areas, 4.2 Policy instruments and measures . 23 areas of natural environment and outdoor recreation areas ...... 36 5 The cultural heritage ...... 24 11.3 A proactive policy for the 5.1 Goals ...... 24 shoreline ...... 37 5.2 Policy instruments and measures . 24 11.4 A proactive land-use and natural resource policy for river basins . . . 37 6 Eutrophication and oil pollution 25 11.5 Adapting holiday housing 6.1 Goals ...... 25 developments to the 6.2 Policy instruments and measures . 25 environment ...... 37 11.6 Land use and the environment in towns and urban settlements . . . . . 37

Utenriksdepartementet

Norwegian Ministry of Foreign Affairs The Government’s Environmental Policy and the State of the Environment in Norway Summary in English: Report No. 21 (2004–2005) to the Storting

Recommendation from the Ministry of Environment of 18 March 2005, approved in the Council of State on the same date. (White paper from the Bondevik II Government)

1 Environmental status 2005

1.1 A shared global responsibility 1.2 The state of the environment in Norway Norway is a wealthy country, and has the capacity and resources both to safeguard its own environ- The previous white paper on the Government’s ment for future generations and to help other coun- environmental policy and the state of the environ- tries. We therefore have a special responsibility to ment in Norway was published in 2003. Since then, play an active part in efforts to reduce global envi- there has been relatively little change in the state of ronmental problems and combat poverty. The rich the environment in Norway. Nature is a large and part of the world cannot continue to base its pros- complex system and changes slowly. The impacts perity on unsustainable resource exploitation. Fur- of pressure on the environment often only become ther improvements in welfare and the quality of life apparent after a considerable delay. We must also must be based on non-material and human values. remember that although nature has a considerable We must respect nature’s tolerance limits and capacity for repair and to withstand human pres- apply the precautionary principle in cases where sure, this capacity is not unlimited. All life on earth there is a risk of serious environmental damage. is vulnerable to pressures such as pollution of air, And we must follow the polluter-pays principle, so soil and water. At present, many environmental that environmental costs are not transferred to trends are negative, both in Norway and globally. neighbours, the community or future generations. New and improved knowledge shows that the These are global responsibilities that must be environmental impacts of some types of pollution translated into local action. are more serious than previously anticipated. Cli- mate change has proved to be a more acute problem than we had believed, and the first impacts are probably already becoming apparent. Hazardous 6 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway substances are becoming more widely dispersed in heritage, the overall trend is clearly negative, the environment and are found in more and more despite the results that have been achieved. Local species, and also pose a greater threat than previ- eutrophication problems are also becoming more ously believed. Biodiversity is under pressure in severe in a number of water bodies. One of the Norway as well as other parts of the world. Wild main reasons for these trends is that environmen- salmon stocks in rivers and fjords have been threat- tal policy instruments have not been effective ened for many years. More recently, we have found enough either at national or at international level. that kelp forests are disappearing from parts of Another important factor is that there are still gaps Norway’s coastline. The area of mountain habitat in our knowledge about various environmental available for wild reindeer is being reduced with problems, for example hazardous substances. increasing traffic and infrastructure development. At global level, the rate of loss of biodiversity is Even though the usual indicators of the state of comparable to what has previously been observed the environment show little change over the past in connection with global natural disasters and two years, the overall level of threat is rising. We rapid climate change. Biodiversity is under threat are facing greater and more complex challenges. in Norway too, and the most serious threats are Environmental policy targets in several areas are considered to be the conversion of agricultural becoming more difficult to achieve. The formula- land for other purposes and other changes in land tion of environmental policy must reflect these use. A series of apparently insignificant develop- developments. This means that environmental pol- ments may have cumulative effects that make it dif- icy for some of Norway’s priority areas must be ficult for species and populations to survive and tightened up. In other areas, it will be sufficient to seriously impair the productivity of ecosystems. continue to apply the policy instruments in use Development also results in habitat fragmentation, today. As we work towards new policy instruments which makes conditions difficult for species that and approaches, we should also maintain the suc- are dependent on large continuous areas for their cessful elements of current environmental policy. survival. The state of the environment and environmen- The negative effects of the spread of invasive tal trends vary from one area of environmental pol- alien species to Norway are also becoming clearer. icy to another. There are positive trends for waste This problem may be intensified by climate management, depletion of the ozone layer, radioac- change. tive pollution and to some extent outdoor recre- About 12 per cent of mainland Norway is pro- ation. In these areas, a number of the national tar- tected under the Nature Conservation Act. Once gets are within reach. Consistent application of pol- the national park plan and the remaining county icy instruments over a period of some years has protection plans have been fully implemented in proved successful, and current policy will generally 2010, 13 -14 per cent of the total area of the main- be continued. land will be protected. We should maintain a high There is a more mixed picture for acidification, tempo in these efforts in order to safeguard habi- local air quality and noise, and to some extent for tats that are endangered and vulnerable or impor- biodiversity, eutrophication and the cultural heri- tant for endangered and vulnerable species, and to tage. Efforts to reduce acidification have yielded avoid damage to areas of high conservation value. results, and conditions in lakes and rivers in the Norway’s objective is to halt the loss of biologi- most sensitive areas have improved in the last 20– cal diversity by 2010. To achieve such an ambitious 30 years. Nevertheless, emissions of acidifying objective, it will be necessary to make use of effec- substances are still too high. Action has also been tive policy instruments and ensure close coopera- taken to reduce inputs of nitrogen and phosphorus tion between all sectors. Ensuring sustainable use to areas where there are signs of eutrophication, of resources is of critical importance for the main- but conditions do not appear to have improved suf- tenance of biodiversity. ficiently. Air pollution and noise are still serious Many Norwegians take part in a variety of out- problems, especially in urban areas and along main door activities and consider outdoor recreation to roads. The overall level of noise annoyance has be an important aspect of their lives. Natural condi- remained more or less unchanged since 1999, tions mean that Norway offers opportunities for despite improvements in vehicle technology and many types of outdoor recreation. In addition, reductions in noise levels from railways and air- there is a general right of public access to unculti- craft. vated land, irrespective of whether it is privately or In some areas, including climate change, haz- publicly owned. However, building and other ardous substances, biodiversity and the cultural forms of development in the coastal zone pose a 2004– 2005 Summary in English: Report No. 21 to the Storting 7 The Government’s Environmental Policy and the State of the Environment in Norway threat to public access in some areas, despite a The largest discharges of oil to marine waters long-standing prohibition on building less than 100 are presumed to be from land-based sources. The metres from the shoreline. The construction of hol- offshore petroleum industry is the largest ocean- iday cabins, particularly in the mountains, can also based source of oil discharges. reduce public access to the countryside. The The concentration of oil in produced water dis- increasing use of off-road vehicles has adverse charged by the oil and gas industry is below the effects on both outdoor recreation and biodiver- limit value in the current legislation, but total dis- sity. In some areas this is reducing opportunities to charges of produced water are expected to rise in enjoy the peace and quiet of the countryside. The the next few years. There is still uncertainty about policy instruments needed to safeguard the basis the possible long-term impacts of the petroleum for outdoor recreation are largely in place, but they industry. The operating companies have drawn up should be used more effectively and actively. plans for achieving the zero discharge goal by 2005 There should be a stronger focus on implementing and are now implementing them. Good results measures and targets for outdoor recreation in the have been achieved in a relatively short space of coastal zone. Furthermore, the municipalities time by cooperation between the authorities and should become more aware that they need to play the industry. an active role in dealing with unauthorised barriers The risk of acute oil pollution is likely to rise in and other obstacles to free access in the coastal the future, mainly because rising volumes of oil will zone. be shipped through Norway’s northern waters There has been a drop in the level of outdoor from Russia. The expansion of petroleum activities physical activity in recent years. Both children and to new areas may also increase the risk of acute dis- adults are spending more and more time on physi- charges. cally less demanding indoor tasks and recreational Emissions and use of hazardous substances are activities. This has adverse effects on public health, considered to represent one of the most serious as shown by the increase in various lifestyle dis- environmental threats today. The numbers of sub- eases. Thus, promoting outdoor recreation is also stances in use is very large, and in many cases we a form of preventive health care. know little about their environmental impacts. The There is growing awareness of the value of cul- most dangerous substances are heavy metals and tural monuments and sites and cultural environ- persistent organic pollutants. They are only slowly ments. Nevertheless, more and more of the cul- biodegradable, which is why they persist in the tural heritage is being lost as a result of deliberate environment. They also have a high bioaccumula- removal and destruction or because of inadequate tion potential, meaning that their concentrations protection and maintenance. The cultural heritage increase along food chains. The long-range trans- should therefore be more actively used in social port of hazardous substances to Norway and the development. The Government’s cultural heritage Arctic is a continuing problem. Concerns are regu- policy is further described in a recent white paper larly raised about new types of chemicals, and in (Report No. 16 (2004–2005 to the Storting). addition there are substances whose hazardous In recent years, action has been taken to reduce properties are well known, such as PCBs. For eutrophication in coastal waters and fresh water instance, brominated flame retardants were intro- bodies. This problem is most serious along the duced in various products to reduce fire hazards, coast from the border with Sweden to Lindesnes, but have proved to have very harmful environmen- the southernmost point of mainland Norway. Pre- tal properties. liminary monitoring results indicate that there has Emissions of hazardous substances are still ris- been no reduction in the quantities of nitrogen and ing, and there are also major challenges involved in particulate matter in coastal waters. Further mea- cleaning up areas that have been polluted by ear- sures will be needed to achieve the target for nitro- lier emissions of such substances. gen inputs. Effective application of policy instruments and Most of the fresh water bodies that are affected good management routines have reduced the envi- by eutrophication are near population centres and ronmental pressures from waste generation, even agricultural areas in Eastern Norway, near Sta- though the quantities of waste generated are con- vanger and around Trondheim. There has been tinuing to rise. However, there are still problems some concern about the ecological status of sev- relating to greenhouse gas emissions from waste eral river basins, such as the Vansjø-Hobøl river treatment and the quantity of hazardous waste gen- basin in Østfold county, but in general the ecologi- erated. Efforts to apply policy instruments more cal status of Norwegian river basins is good. effectively and increase the quantity of waste deliv- 8 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway ered for material and energy recovery are there- about 30 per cent by 2010, as required by the 1999 fore continuing. Gothenburg Protocol. This commitment means Climate change and the challenges it involves that Norway will have to make substantial emission are more serious than was previously believed. reductions, particularly from shipping, the fisher- The Intergovernmental Panel on Climate Change ies industry, land-based industry and electricity (IPCC) estimates that the mean global tempera- generation on the continental shelf. Measures to ture will rise by 1.4–5.8 °C in the next 100 years. reduce emissions will also be needed in other sec- The IPCC has concluded that there is now new and tors. stronger evidence that most of the warming Norway has achieved the emission reductions observed over the last 50 years is attributable to required by the 1988 NOx Protocol and the 1994 human activities. Sulphur Protocol. An agreement has been reached Preliminary results from the RegClim research with the process industry on regulation of its emis- programme indicate that there will be a mean tem- sions, and it is expected that this will also enable perature rise of between 1 and 2 °C in Norway from Norway to meet its commitment for the reduction the period 1980–2000 to 2030–2050. The climate of SO2 emissions under the Gothenburg Protocol. will become windier and wetter, and weather pat- Norway’s current commitments under the VOC terns will be generally more unstable. This will Protocol will be achieved in 2005–2006 as a result make infrastructure, buildings and economic activ- of new requirements for emission reductions dur- ity more vulnerable to natural forces. ing offloading and storage of crude oil offshore. The degree to which temperature change These requirements should also ensure that Nor- results in changes in biodiversity will depend on way meets its commitment to reduce VOC emis- the speed of change and how well species can sions under the Gothenburg Protocol. Norway is adapt to a changed climate. expected to comply with its commitment to reduce The Kyoto Protocol is the first step on the way ammonia emissions under the Gothenburg Proto- to reducing global greenhouse gas emissions. col without introducing any significant new mea- However, far greater cuts in emissions from indus- sures. trialised countries and restrictions on emissions In towns and urban settlements, noise and local from developing countries will be needed to pre- air pollution can cause substantial health and wel- vent undesirable climate change. fare problems. Although air quality in the largest In 2003, Norway’s greenhouse gas emissions towns in Norway has shown a positive trend in totalled 54.8 million tonnes CO2 equivalents. They recent years, a large proportion of the population is are projected to reach 64.5 million tonnes CO2 at times exposed to high levels of air pollution. equivalents in 2010 unless new control measures The most important sources of local air pollu- are introduced. The growth in emissions is mainly tion are emissions from road traffic and fuelwood explained by rising emissions from the oil and gas use. More effective policy instruments will be industry and the transport sector. According to needed to reduce emissions from these sources. these figures, Norway’s emissions in 2010 will be Noise is one of the major remaining environ- 16 per cent higher than the level required to meet mental problems in Norway, and one of those that its Kyoto commitment. This commitment is to be affects the largest number of people. About 1.7 mil- met through national measures, supplemented by lion Norwegians are exposed to noise levels use of the Kyoto mechanisms. exceeding 50 decibels outside their homes. It has There is considerable long-range transport of been calculated that about half a million people are pollutants to Norway. More than 90 per cent of acid annoyed or highly annoyed by noise. Noise from deposition in Norway originates abroad. In the past road, air and rail traffic accounts for almost 90 per 20 years, emissions of acidifying substances in cent of all noise annoyance, and road traffic alone Europe have been substantially reduced as a result for almost 80 per cent. of international agreements. Nevertheless, the pol- Because of the constantly rising volume of traf- lution load will continue to be fairly high in the fic, noise annoyance has remained almost constant future, mainly in the southern counties of Aust- over the past 10 years, despite improvements in Agder, Vest-Agder and Rogaland. vehicle technology. Projections suggest that Norway has undertaken ambitious commit- unless further measures are taken to reduce noise, ments to reduce emissions under the international noise annoyance will only drop by about five per agreements on long-range transport of pollutants. cent by 2010, mainly as a result of technological The greatest challenge in the years to come will be improvements of vehicles and aircraft. This means to reduce Norway’s annual NOx emissions by 2004– 2005 Summary in English: Report No. 21 to the Storting 9 The Government’s Environmental Policy and the State of the Environment in Norway that the national target for noise will not be may have a negative impact on the natural environ- achieved by continuing current policy. ment here too, and increase the risk of pollution. Norway is responsible for management of parts The expansion of research activities also poses of the polar regions, which are still some of the challenges in relation to the Antarctic environ- cleanest and best-managed areas of natural habitat ment. in the world. Utilisation of the rich marine There are many environmental policy chal- resources of the Arctic is also of crucial importance lenges related to land use. It is particularly impor- for employment, economic growth and settlement tant to ensure that policy instruments and mea- along the Norwegian coast. The environment in sures related to land use are compatible with other these areas is being threatened by more intensive elements of environmental policy. utilisation of natural resources, the growing vol- The shoreline is under pressure near towns ume of transport, and long-range transport of pol- and urban settlements in Norway, where higher lutants with air and ocean currents from Europe, population density leads to land use conflicts. Asia, North America and North Africa. There is most pressure for developments that will It is likely that long-range transport of environ- reduce public access to the shoreline in central mentally hazardous substances will continue to put parts of the country, for example around the Oslo- pressure on the Arctic environment. In 2020, the fjord. These may be commercial developments, total pollution load, including both «new» and residential buildings or holiday homes. «old» pollutants, will probably be about the same as Economic activity in uncultivated countryside today. This means that there will also be continued and the mountains is also expanding. This includes problems such as reduced reproductive capacity widespread building of holiday cabins, sometimes and poor resistance to disease among Arctic ani- combined with other tourist activities. In addition, mals. there are growing commercial developments asso- Oil and gas transport from Russia, and possibly ciated with national parks and mountain summer also the transport of spent nuclear fuel to Russia farms. It is important to ensure that forms of com- along the Norwegian coast, will result in a rising mercial development that are based on natural risk of accidents that can cause environmental resources and the environment do not conflict with damage. With the growing volume of shipping, nature conservation goals. there will also be rising discharges of ballast water Every year, considerable areas of cultivated and a greater risk that alien species will be intro- and cultivable land, probably up to 3 000 hectares a duced. year, are converted for other purposes. The pres- Climate change is a further threat to the Arctic sure on farmland is greatest around the largest environment. Climate change may result in towns in southern and central Norway. It is impor- changes in sea temperature, the distribution of sea tant to reduce losses of productive agricultural ice and ocean currents. Temperatures in the Arctic areas substantially. have been rising at nearly twice the average global The cultural landscape means land that has rate, and this trend is expected to continue. The been shaped and cultivated by people. It is intrinsi- impacts of climate change in the Arctic will be felt cally valuable and also an important habitat for throughout the world, since changes in the Arctic plants and animals. Many species associated with influence the global climate and can result in rapid such areas are dependent on continued human climate change. activity for their survival. Large parts of the cultural Svalbard has retained its character as a large, landscape are changing rapidly, mainly because continuous area of wilderness without major devel- changes in agricultural techniques and the aban- opments. However, the growing traffic associated donment of marginal areas mean that they are with tourism and research activities is causing becoming overgrown. wear and tear on the environment and cultural The built environment accounts for about 70 remains. Mining is also a threat to untouched areas per cent of Norway’s real wealth, and buildings of natural habitat. On the other hand, a number of alone account for about 40 per cent of the total. animal populations that were once threatened by This makes the construction industry one of the over-exploitation have been restored to their country’s largest and most important industries, former levels or are growing. and one that may have a major environmental The adoption of the Environmental Protocol impact. According to the Public Procurement Act, under the Antarctic Treaty ensured that Antarctica life-cycle costs and environmental impacts must be is protected as a world park for a period of at least taken into account when planning new invest- 50 years. However, growing traffic and tourism ments. The state is an important market actor in 10 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway the construction industry, and therefore has a con- that the environmental authorities face in their day- siderable responsibility for encouraging private to-day work. actors to take environmental considerations into Good results have been achieved both by using account. environmental policy instruments such as the Pol- lution Control Act and the Nature Conservation Act, and by cooperation between the environmental authorities and other sectoral authorities. For 1.3 The path forward example, the agricultural sector plays an important role in carrying out key environmental tasks and in There are still major environmental challenges to dealing with various environmental problems. be dealt with, but it is clear that our efforts over the All sectoral authorities are responsible for past 30 years and more have given results. For avoiding unnecessary environmental pressure in example, we have made a great deal of progress in their own sphere of responsibility and for integrat- reducing industrial emissions and discharges of ing environmental considerations into sectoral pol- polluted waste water from towns and urban settle- icies. Policy instruments available to all sectors ments. Many of the environmental problems that can, if used in the right way, help to prevent or have been dealt with were easily recognisable and solve environmental problems. It is an ongoing well-defined, which made it easier to gain public task to ensure that these instruments are always acceptance for the need to take action. Many prob- targeted to achieve environmental policy targets lems could be reduced by using end-of-pipe tech- and give positive environmental effects. Environ- nology or changing production techniques. Others mental efforts in all sectors must be in line with the disappeared as a result of restructuring of indus- strategic objectives and national targets of Nor- tries and the business sector. Efforts to protect way’s environmental policy. valuable areas of natural environment have been However, sectoral responsibilities for environ- helped by the fact that Norwegians generally iden- mental policy need to be further clarified and tify strongly with their natural surroundings and strengthened. In particular, better coordination is make extensive use of them. The challenges we needed to deal with diffuse environmental prob- must deal with in the future are increasingly asso- lems and problems that need to be solved by ciated with the structure and functioning of society means of close cooperation between several sec- as a whole rather than with specific sectors. This tors and the other parties involved. also means that they are more complicated to deal To ensure coordination between sectors, cross- with. Greenhouse gas emissions and emissions of sectoral measures are required. The Ministry of hazardous chemicals are good examples. the Environment plays a key role in developing The development of environmental policy has cross-sectoral environmental quality targets and in involved several processes: building up knowledge setting priorities and coordinating efforts within of the functioning of the natural world, the develop- the framework of these targets. ment of broad-based public engagement in envi- The sectoral environmental action plans drawn ronmental issues, the introduction of extensive leg- up by the ministries in the period 1998 – 2002 have islation in the environmental field, and the estab- played an important role in clarifying sectoral lishment of institutions to draw up and implement responsibilities. In these plans, the ministries pre- strategies and action. Environmental protection sented their sectoral environmental targets and the has become an important sector of society, includ- instruments they planned to use to achieve them. ing administration and research and also various The system of sectoral environmental action plans kinds of economic activity. It is now generally was evaluated in 2004, and it was decided that sec- accepted that all sectors of society share the toral responsibilities for environmental policy are responsibility for avoiding unnecessary pressure to be followed up through the ordinary budgeting on the environment. processes and the white papers on the Govern- In the years ahead, we must consolidate the ment’s environmental policy and the state of the results that have been achieved and further environment in Norway. develop the methods and policy instruments used Cooperation between the police and prosecut- by the environmental authorities. We must build ing authority and other authorities and organisa- on the broad support that has been achieved for tions at local, regional and national level is an environmental measures and instruments. There important element of environmental policy. The is growing competition for attention in the media police and prosecuting authority, together with and public opinion, and this adds to the challenges central supervisory authorities, play a key role in 2004– 2005 Summary in English: Report No. 21 to the Storting 11 The Government’s Environmental Policy and the State of the Environment in Norway preventing and combating environmental crime. mation about them. Computer technology is mak- One good example of cooperation is that an envi- ing it possible to develop new methods of environ- ronmental forum has been established in each mental monitoring and processing environmental county under the chief of police. The responsibili- data. It is important to expand the use of computer ties of the police and other cooperating authorities technology to disseminate information, for envi- will be further clarified. ronmental monitoring and as a tool for the environ- The police forces also have their own environmental authorities. mental coordinators and environmental contacts. Better environmental information enables peo- Each police district has an officer who is responsi- ple to learn more about environmentally-sound ble for dealing with environmental crime. The products and increases the demand for such prod- National Authority for Investigation and Prosecu- ucts. It is still possible to shift a greater proportion tion of Economic and Environmental Crime in Nor- of consumer demand and the demand in various way (ØKOKRIM) is responsible for investigating sectors towards products with less environmental and prosecuting serious cases of environmental impact. crime and for assisting other parts of the police sys- Environmental policy should be designed to tem. ensure that its positive effects extend beyond the Knowledge development, sound management environment. This can increase support for envi- and democratic participation will continue to be ronmental protection in other sectors. For exam- key elements of Norway’s environmental policy. ple, developing and marketing environmental tech- However, policy development and the implementa- nology, or using elements of the cultural heritage tion of measures and policy instruments also as a resource for society, provides employment and require political will and capacity. The framework builds up expertise that is in demand both in Nor- for national policy development is changing with way and internationally. Denmark’s success in political and economic globalisation, which are developing and exporting wind power technology restricting the extent to which individual countries is an illustration of the opportunities offered by can develop independent environmental policies. environmental technology. Stiffer international competition is making it a chal- The public sector can use its market power to lenging task to design policy instruments that also promote green procurement and encourage the take into account the competitive conditions for construction industry and building managers to enterprises. WTO and EU/EEA rules lay down improve their environmental profile. This is also a standards and a framework for action in environ- way of using resources more efficiently, thus mental policy. Multilateral environmental agree- reducing costs and greening operations. ments set out commitments for individual coun- Norway’s municipalities have some freedom of tries and form the basis for priorities and the appli- action as regards how they implement environ- cation of policy instruments. mental policy. If they make full use of this, they can Technological developments are an important achieve a great deal, while at the same time revital- driving force for social development, and especially ising local democracy and further developing local as regards the impact of human activities on the autonomy. This should also increase support for environment. Technological revolutions have dras- environmental policy and increase its legitimacy at tically changed material living conditions and our both local and national level. ability to utilise natural resources and change the The environmental NGOs play an important environment. Technological advances provide new role in raising awareness about environmental solutions in environmental policy, for example bet- issues and stimulating public interest. They also ter equipment for controlling emissions, improved function as a school for democracy and voluntary energy technology and more effective use of work. However, membership of most of Norway’s resources. environmental NGOs has dropped in recent years. Advances in computer technology have made It is important to maintain and encourage the environmental information much more easily engagement in environmental matters that exists accessible than before. More people can learn within these organisations. about environmental problems and exchange infor- 12 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

2 Key priorities of Norwegian environmental policy

This chapter discusses the key priorities for Nor- alien species and subsequent damage to ecosys- wegian environmental policy for the next two tems is likely to increase in future as a result of years. The first five of these – halting the loss of other developments such as climate change and biodiversity, climate policy, reducing NOx emis- the growing volume of transport. sions, halting emissions of environmentally haz- At the same time, Norway enjoys a number of ardous substances, and improving waste manage- natural advantages for the production of high-qual- ment – coincide with or form part of the long-term ity food, such as high insolation in summer and priority areas of the country’s environmental pol- reliable supplies of clean water. The world popula- icy. Planned policy instruments and measures for tion is rising and prosperity is increasing, espe- these areas are listed under the appropriate head- cially in Asia, and it is therefore increasingly impor- ings in other chapters. The other five are cross-cut- tant to consider food supplies and areas suitable for ting issues – environmental policy at local level, food production as a global concern. Our ability to sustainable production and consumption, environ- feed ourselves will be rapidly reduced if cultivated mental technologies, greening public procurement and cultivable land continues to be converted to and developing a knowledge-based environmental other uses. Highly productive agricultural areas policy. Planned policy instruments and measures near towns and urban settlements are under the for these areas are listed in this chapter. greatest pressure. These are also the areas that will be most valuable for the production of environmentally friendly, locally-grown food in the future. The 2.1 Halting the loss of biodiversity rapid conversion of farmland for other purposes is also a threat to the value of these areas as land- The Government’s goal scapes and to their value as habitats for plants and • To implement measures designed to halt the animals. loss of biodiversity by 2010. The Government’s response The situation today To halt the loss of biodiversity by 2010 will require Norway is responsible for only a modest propor- a concerted effort involving the whole of Norwe- tion of the world’s biodiversity. However, climate, gian society, including the public authorities, the topography and land use show remarkable varia- business sector, research institutions, and NGOs. tions within the country’s borders, by both Euro- Policy instruments must be made more effective pean and global standards. Norway stretches into and must be coordinated better. Research pro- the Arctic, and must therefore find responses to grammes and surveys and monitoring of the state the major environmental challenges in the region. of the environment are an essential basis for taking Norway also has a special responsibility for certain effective action before it is too late. species that are of great biological and/or eco- The policy instruments and measures the Gov- nomic importance, such as the Atlantic salmon and ernment intends to use to halt the loss of biodiver- wild reindeer. sity by 2010 are listed in Chapter 3.3. In Norway, just as in the rest of the world, there One of the national targets for land-use policy is are a number of threats to biological diversity. also highly relevant in this connection: to halve the Physical alterations and changes in land use are annual conversion of the most valuable soil the most important causes of the loss of species resources for other purposes than agriculture, and and life forms. A series of apparently insignificant to document particularly valuable areas of cultural developments may have cumulative effects that landscape and put in place management plans. To make it difficult for species and populations to sur- achieve this target, it will be necessary to focus vive and seriously impair the productivity of eco- more closely on the responsibilities of municipali- systems. The risk of undesirable introduction of ties as land-use authorities. Land use planning 2004– 2005 Summary in English: Report No. 21 to the Storting 13 The Government’s Environmental Policy and the State of the Environment in Norway should also be based on good scientific documen- that much larger cuts in emissions will be neces- tation and a close dialogue between local authori- sary to prevent undesirable climate change. The ties and interested parties. The Government most important task now is to start a dialogue and wishes to ensure that the municipalities take their negotiations on a more ambitious global climate share of the responsibility for these efforts and regime for the period after the first commitment encourage them to build up their knowledge of period under the Kyoto Protocol. valuable areas of agricultural land and cultural At national level, it is important to develop inno- landscapes. vative solutions as a basis for substantial longer- term reductions in Norway’s greenhouse gas emissions. The Government will: • Draw up guidelines for surveys of core agricultural areas The Government’s response • Develop visual aids for use in dialogue and The Government will ensure that Norway meets its cooperation at regional and local level. commitment under the Kyoto Protocol. The development of policy instruments and measures to reduce greenhouse gas emissions will continue. 2.2 Developing a more ambitious This work is closely related to both energy policy climate policy and transport policy. The Government wishes Norway to play an The Government’s goals active role in efforts to draw up a more ambitious • To ensure that Norway meets its commitment climate agreement for the period after 2012. As a under the Kyoto Protocol non-member of the EU, Norway can play an impor- • To play an active role in developing a more tant role in this process, and also has a responsibil- ambitious global climate agreement for the ity to do so. The Government believes that Norway period after 2012. can play an important part as a bridge-builder vis-à- vis developing countries, and thus be instrumental in reducing polarisation between industrialised The situation today and developing countries in the global climate dia- The Kyoto Protocol entered into force on 16 Febru- logue. ary this year. In the period 1990–2003, Norway’s The policy instruments and measures the Gov- aggregate greenhouse gas emissions rose by ernment intends to use as part of a proactive cli- about 9 per cent, from 50.1 to 54.8 million tonnes mate policy are listed in Chapter 9.2.1. CO2 equivalents. According to an estimate in the 2004 national budget, emissions will continue to rise unless new control measures are introduced, 2.3 Reducing NOx emissions in to about 64.5 million tonnes CO2 equivalents in accordance with the Gothenburg 2010. This is about 22 per cent higher than the level Protocol required to meet Norway’s Kyoto commitment. By continuing to levy the CO2 tax and combin- The Government’s goal: ing this with the national emissions trading • To introduce the necessary measures and scheme and other measures, Norway will ensure instruments needed to ensure that Norway that environmental policy instruments apply to meets its commitment to reduce emissions of almost all national greenhouse gas emissions. This nitrogen oxides (NOx) under the Gothenburg will also mean that there are incentives for most Protocol by 2010. enterprises to take steps to cut their emissions. Under the Kyoto Protocol, the industrialised countries have for the first time undertaken bind- The situation today ing obligations to limit and reduce their green- The 1999 Gothenburg Protocol entered into force house gas emissions. The Protocol is primarily on 17 May 2005. Norway has ratified the protocol, important as a building block of an international and has among other things undertaken to reduce framework of climate cooperation. The Third annual emissions of nitrogen oxides (NOx) to Assessment Report from the Intergovernmental 156 000 tonnes by 2010. New control measures will Panel on Climate Change (IPCC), which was pub- have to be introduced in several sectors if Norway lished in 2001, makes it even clearer than before is to meet this commitment. It is important to lay 14 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway down a framework for such measures now, so that ses, measures in the offshore petroleum industry they can be implemented soon enough to be effec- are generally more costly than those that were tive from 2010. evaluated for national sea traffic and the fishing In 2003, NOx emissions in Norway totalled fleet. It is also necessary to consider measures in 220 000 tonnes. According to projections drawn up other sectors where there are large NOx emis- for a white paper on economic policy published in sions, such as road traffic. 2004 (Report No. 8 (2004–2005) to the Storting), The policy instruments and measures the Gov- annual NOx emissions are likely to be reduced to ernment intends to use to reduce NOx emissions about 200 000 tonnes in 2010 and 162 000 tonnes in are listed in Chapter 9.4.3. 2020 by the application of current policy instruments. To meet Norway’s commitment under the Gothenburg Protocol, annual emissions must be reduced by a further 45 000 tonnes. 2.4 Halting emissions of It is expected that emissions from road traffic in environmentally hazardous particular will decrease in the period up to 2010, as substances a result of stricter emission standards for new vehicles. Emissions from the petroleum industry are The Government’s goal also expected to drop in this period. However, • To intensify efforts to reach the targets for sub- emissions from certain other sectors are expected stances that are hazardous to health and the to rise as a result of a higher level of activity. environment, and to eliminate emissions of the most environmentally hazardous substances by 2020. The Government’s response Norway has been one of the countries at the forefront of efforts to develop binding international The situation today agreements on reductions in long-range air pollu- All products contain chemicals, and they are used tion. Norway is a net recipient of transboundary air in almost all production processes. There are at pollution, and will therefore enjoy substantial envi- present roughly 50 000 chemicals on the European ronmental benefits if other countries meet their market. In most cases, we know little or nothing international commitments in this field. It is there- about their effects on health and the environment. fore vital for Norway itself to meet its commitments Emissions of pollutants are generated by many under the Gothenburg Protocol. processes – mining, industrial production of raw The measures and instruments that are chosen materials and finished products, the use of prod- must make it possible to meet Norway’s commit- ucts in households, industry and workplaces, and ments under the protocol as cost-effectively and waste treatment. efficiently as possible. In addition, long-range inputs of environmen- The Government has commissioned cross-sec- tally hazardous substances reach Norway with toral analyses of the potential for further measures winds and ocean currents. There are many places to reduce NOx emissions and the costs of these where such pollutants, generated for example by measures. About 40 per cent of Norway’s NOx industrial activities, have been deposited in soils or emissions are generated by national sea traffic and in marine and fresh water sediments. the fishing industry. The analyses also show that The Government’s target of eliminating all measures targeted towards national sea traffic and emissions of environmentally hazardous sub- the fishing fleet can be introduced at lowest cost. A stances within one generation, i.e. by 2020, is substantial proportion of the reduction in emis- unlikely to be achieved if such substances continue sions should therefore be in these sectors. In addi- to be used in ordinary consumer products. tion, the analyses identify some cost-effective NOx measures for manufacturing industries in mainland Norway and for electricity generation on the The Government’s response continental shelf. These sources account for The policy instruments and measures the Govern- approximately 9 and 17 per cent respectively of ment intends to use to reduce emissions of hazard- Norway’s NOx emissions. According to the analy- ous substances are listed in Chapter 7.3. 2004– 2005 Summary in English: Report No. 21 to the Storting 15 The Government’s Environmental Policy and the State of the Environment in Norway

2.5 Improving waste management 2.6 Developing environmental and increasing waste recovery policy at local level

The Government’s goal The Government’s goal • Reduce the environmental pressures caused by • To encourage municipalities to make full use of waste and ensure that greater use is made of the freedom of action they have in the field of waste as a resource. environmental policy, for example by exchang- ing best practices. The situation today Today, the proportion of waste recovered in Nor- The situation today way is higher than ever before. Almost 70 per cent Challenges in some environmental policy areas of all waste is used either for material recovery can be dealt with most effectively by means of (recycling) or for energy recovery. This means international cooperation combined with national that we are well on the way to achieving the target policy instruments. Climate policy is a good exam- of 75 per cent waste recovery by 2010. This suc- ple. In these fields, the municipalities can make an cessful result has been achieved by a combination important additional contribution if they make full of an ambitious waste policy with active and con- use of the opportunities available to them. In other structive follow-up of municipalities, the business policy areas, such as the management of biodiver- sector and other actors. sity, the shoreline and the cultural heritage, the Nevertheless, waste recovery and disposal still Planning and Building Act puts the most important generates substantial releases of pollutants to air, policy instruments at the disposal of the municipal- soil and water, and thus causes both local and glo- ities. bal environmental problems. Methane emissions To achieve Norway’s objective of realising sus- from landfills currently account for about 4 per cent tainable development will require the active of Norway’s aggregate greenhouse gas emissions. involvement of the state authorities, municipalities, Because more and more of the substances in NGOs and the business sector. Because the munic- waste are recognised as environmentally hazard- ipal authorities have close links to the local popula- ous, the quantity of hazardous waste is also rising. tion, local businesses and local NGOs, they can Every year, 800 000 tonnes of hazardous waste is more easily gain support for national and local envi- generated. A substantial proportion of this, esti- ronmental policy. If all municipalities make full use mated at 100 000 tonnes, is not handled in accor- of their freedom of action in different roles – pro- dance with the legislation, and therefore repre- viding services, exercising authority, and commu- sents a threat to the environment. nity development – they can make an important contribution to achieving the goals of environmental policy. It will be necessary to develop tools and The Government’s response instruments that can be used to give environmental In future, Norway’s waste treatment and disposal protection and sustainable development a higher plants will be required to satisfy strict environmen- profile and integrate them better into the ordinary tal standards, and waste materials will be required municipal planning and management systems. A to satisfy specific quality standards, so that they are great deal of knowledge and experience has been in demand as resources. The Government will seek acquired through local environmental efforts in to change Norway from a waste-generating society recent years. Considerable environmental benefits to one based on waste recovery and recycling. can be gained by spreading this knowledge to as The policy instruments and measures the Gov- many municipalities as possible. ernment intends to use in this field are listed in Better cooperation between the central sectoral Chapter 8.3. authorities is needed to encourage good environmental practices at local level and the development of environmentally sound communities. Central government incentives and policy instruments in various fields must be coordinated so that national environmental targets can be achieved efficiently at local level. 16 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

tenfold reduction in resource consumption in the The Government’s response industrialised countries is a necessary long-term The Government will: target if adequate resources are to be released for • Establish a five-year programme for further the needs of developing countries». The Govern- development of local-level environmental pro- ment added that people in the industrialised coun- tection and sustainable local communities, in tries will have to realise that any future improve- cooperation with the municipal sector (the Nor- ment in the quality of their lives both can and must wegian Association of Local and Regional be based on considerably lower consumption of Authorities), as part of the follow-up of National resources. Agenda 21 and the Government’s modernisa- Far-reaching changes in production and con- tion initiative vis-à-vis the municipalities. sumption patterns will thus be required to ensure • Encourage municipalities to draw up environ- that everyone can enjoy a satisfactory quality of life mental reports as part of municipal planning and living conditions without destroying the natu- routines and develop tools to help them with ral resource base or exceeding the carrying capac- this. ity of the environment. People in the rich part of the • Provide a framework for proactive local efforts world, including rich people in developing coun- in the fields of energy and climate. tries, have a dual responsibility. They must both • Provide a framework for active municipal par- reduce the environmental pressure caused by their ticipation in environmental cooperation with own consumption and help to prevent economic local communities in developing countries. growth and development in poor countries from • Promote good environmental practices at imposing excessive costs on the environment and municipal level and encourage municipalities to resource base. incorporate environmental considerations into A substantial proportion of consumption in Nor- public procurement processes. way is based on raw materials and products extracted and manufactured in other countries. To achieve global results, action is required in both 2.7 Moving to sustainable production developing and industrialised countries. At the and consumption World Summit on Sustainable Development in Johannesburg in 2002, world leaders committed The Government’s goal themselves to a 10-year framework of programmes • To reduce the environmental pressure caused to promote sustainable production and consump- by production and consumption in Norway. tion patterns. Achieving results in this field is a complex task with a wide scope, and will require changes in The situation today behaviour by all actors, including the business sec- Regardless of how we measure it, the consumption tor, NGOs, international organisations, the public of goods and services has been rising steadily in sector, consumers and the general public. industrialised countries for many years. Consump- tion is also rising rapidly in many developing countries. However, figures from the UN Commission The Government’s response on Sustainable Development (CSD) show that the Continued efforts to bring about a shift to sustain- richest 15 per cent of the world population still able production and consumption will involve a account for 56 per cent of total world consumption. wide range of measures and sectors. The Govern- The poorest 40 per cent account for only 11 per ment’s policy will be designed to encourage the cent of total consumption. Many countries are still business sector, NGOs, the public administration dependent on substantial economic growth to be and individual people to play an active part in these able to satisfy their people’s basic needs. efforts. Sections 2.5–2.10 of this chapter list a num- At the same time, we know that the global envi- ber of cross-cutting measures and initiatives that ronment cannot sustain a continuing worldwide are intended to promote more sustainable produc- rise in consumption at the same rate and following tion and consumption. In addition, the Government the same patterns as we have seen until now in the considers that more knowledge and better analy- rich part of the world. In a white paper on globali- ses and tools are needed to follow developments in sation (Report No. 19 (2002–2003) to the Storting), this field. The Government will play an active part the Norwegian Government quoted Global Envi- in efforts to promote sustainable production and ronmental Outlook 2000, according to which «a consumption at Nordic, European and global level, 2004– 2005 Summary in English: Report No. 21 to the Storting 17 The Government’s Environmental Policy and the State of the Environment in Norway and particularly in following up the commitments important environmental challenges. Reducing made at the Johannesburg Summit. energy and resource use often reduce costs as The Government will: well, thus improving the competitive position of the • Actively encourage more Norwegian compa- technology in question. Thus, environmental tech- nies to focus on corporate social responsibility nologies can contribute to industrial development (CSR) and promote the development of an and higher employment in addition to environmen- international framework that gives greater sup- tal improvements. port to CSR. Lower costs give developing countries more • Play an active role in international cooperation opportunity to make use of such technologies, thus in this field (in the Nordic Council, the EU, helping them to satisfy their urgent need for eco- UNEP and CSD) in support of the Johannes- nomic growth without putting too much pressure burg commitment to the development of a 10- on the environment. In this way, environmental year framework of programmes to promote technologies can provide a basis for increasing sustainable consumption and production. value creation while reducing environmental pres- • Within Norway’s development cooperation sure and global poverty. activities, encourage cooperation on sustain- There is growing international interest in envi- able production and consumption with those ronmental technology solutions. The EU, for exam- developing countries that are interested. ple has adopted the Environmental Technologies • Give priority to analyses of the environmental Action Plan. The Government intends to take part impacts of production and consumption in Nor- in the follow-up of this plan and ensure that Norwe- way, and develop suitable indicators for moni- gian actors can take part in relevant activities and toring the relationship between consumption processes. The growing international interest also and its environmental impacts over time. This means that opportunities for the export of Norwe- work must be coordinated with the proposals gian environmental technology are expanding. from the committee appointed to develop a core A number of Norwegian companies and set of indicators for sustainable development. research communities are already world leaders in • Develop a strategy for sustainable management various environmental technologies. Norwegian of state-owned buildings. companies are at the forefront of developments • Provide a satisfactory framework and suitable internationally in the fields of waste management, instruments for sustainable building manage- water, air and energy. ment in the municipal sector as part of the fol- The Government wishes Norway to take a pro- low up of the report on municipal property man- active and ambitious approach to the environmen- agement (Official Norwegian Report 2004: 22) tal technology field. The Government’s vision is for Norway to play a leading role internationally in the development and use of environmental technologies, and for Norwegian environmental technology 2.8 Focusing on environmental to play a part in resolving environmental problems technologies at both national and international level. In particular, the Government sees it as important that Nor- The Government’s goal wegian solutions can help to bring about environ- • To give Norway a pioneering role in the devel- mental improvements and reduce poverty in development of environmental technologies oping countries.

The situation today The Government’s response Future improvements in welfare must be achieved To reinforce efforts in the field of environmental with less use of resources, energy and harmful technology, the Government will: chemicals. One way of doing this is to step up the • Promote the expansion of research on environ- development and use of environmental technolo- mental technologies and make fuller use of gies. Their use can bring about considerable envi- research results. ronmental improvements both nationally and inter- • Clarify what contribution the business sector is nationally. expected to make, and evaluate ways of making The Government intends to promote the devel- better use of existing sources of funding, such opment and use of environmental technologies and as the grant schemes administered by Innova- to make them a key element of efforts to deal with tion Norway. 18 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

• Ensure that Norwegian actors can make use of The OECD has also urged member states to the opportunities offered by the new EEA finan- greater effort in this field. Moreover, public pro- cial mechanisms. Environmental technology curement is also a central element of the EU’s Inte- will be one natural priority area for Norway in grated Product Policy and its Environmental Tech- its cooperation with the new member states. nologies Action Plan. The Commission has urged • Assess how Norwegian aid funds can be used member states to draw up their own action plans to a greater degree to promote the develop- for green public procurement from 2005. Several ment and use of environmental technologies. EU states are already engaged in this work, and the • Strengthen information activities and the com- Nordic countries Sweden and Denmark are play- petence of the environmental authorities in this ing a leading role. In the Government’s view, Nor- field. way should also be at the forefront of develop- • Consider the establishment of a national centre ments in this field in Europe. for environmental technology for both children Norway’s new Public Procurement Act entered and adults. into force in 2001, and requires public authorities to take life-cycle costs and environmental impacts into account when planning new investments. The requirements have been further elaborated in reg- 2.9 Greening public procurement ulations and in guidelines published by the Minis- try of Trade and Industry. In addition to environ- The Government’s goal mental considerations, the legislation requires • To reduce the environmental pressure caused many other considerations to be taken into account by the consumption of goods and services by during public procurement processes. For exam- giving greater weight to environmental consid- ple, steps must be taken to ensure equal conditions erations in public procurement processes of competition for actors in the business sector. Because several different objectives are involved, it may be more complicated to incorporate environ- The situation today mental considerations into procurement processes In 2003, the total value of goods and services pur- in the public sector than in the private sector. This chased by the public sector was almost NOK 240 applies, for example, to the development of envi- billion, of which NOK 96 billion was in the central ronmental criteria in connection with tendering. In government sector and NOK 70 billion in the the Government’s view, further measures are municipal sector. Publicly-owned commercial needed to build up public-sector expertise on envi- enterprises accounted for the remainder. This ronmental aspects of procurement, and to make means that there is a substantial potential for the development of environmental criteria more reducing the environmental impact of the public efficient. They are needed to ensure that the public sector. By setting higher environmental standards, sector can achieve its full potential for influencing the public sector can persuade suppliers and man- the market for environmentally sound goods and ufacturers to shift towards greener product devel- services and that Norway is at the forefront of opment, and thus encourage the marketing of a developments in Europe. wider range of products with more positive environmental attributes. In the Government’s opinion, the public sector has a special responsibility to lead The Government’s response the way, given its size and the fact that it is respon- To reinforce efforts in the field of public procure- sible for managing public funds. Public-sector ment, the Government will: agencies should be aware of the environmental • Establish a green public procurement panel as impacts of their purchases, set environmental stan- a national advisory body for the authorities. dards, and choose the best solutions in environ- The panel will include representatives of cen- mental terms within the constraints of price and tral government and municipal agencies, the quality. The Government wishes the public sector business sector, the educational sector, etc. to be a driving force in efforts to shift the pattern of The panel’s main functions will be consumption in Norway in a more sustainable – to identify opportunities for including envi- direction. ronmental considerations in public procure- The importance of including environmental ment processes, and barriers to doing so, considerations in public procurement policies was – to propose new policy instruments and mea- emphasised at the Johannesburg Summit in 2002. sures, 2004– 2005 Summary in English: Report No. 21 to the Storting 19 The Government’s Environmental Policy and the State of the Environment in Norway

– to evaluate the need to develop new indica- important role in communicating environmental tors for this field or further develop existing information. Product information and green certifi- indicators. cate schemes are other sources of environmental • Establish a programme at the GRIP Centre for information. Sustainable Production and Consumption. The programme will help to ensure that public-sector agencies are familiar with the environmen- The Government’s response tal standards laid down by the rules relating to Up-to-date and accurate knowledge is essential for public procurement, and that they have suffi- preventing and repairing environmental damage. cient expertise to comply with these rules. The The Government will give high priority to programme is also intended to make it easier to ensuring that everyone has access to environmen- set specific environmental standards in prac- tal information, and particularly that it is an integral tice. part of the education of children and young people. Environmental information must also be an element of lifelong learning and play a part in influenc- 2.10 Developing a knowledge-based ing people’s attitudes. Information must be used to environmental policy encourage participation in decision-making processes in society and to provide a basis for making The Government’s goal environmentally friendly choices on a day-to-day • To improve the knowledge base for environ- basis. mental policy and raise the general level of The Internet is a powerful tool for developing environmental awareness in Norwegian society knowledge and processing and communicating information. More and more people are using the Internet and other electronic means of maintaining The situation today: more knowledge needed contact and finding information. The Internet has Environmental policy must be based on knowledge also become a key channel for communication of ecological interactions and interactions between between members of the public and the public nature and society, and how activities in various administration. Environmental information must sectors of society influence the environment and increasingly be provided electronically and in a human health. Without adequate knowledge, polit- way that makes it possible to have a dialogue with ical goals will be haphazard and the public admin- users. istration will be left behind and will not be able to To improve the knowledge base for environ- take an innovative approach. mental policy and raise the general level of environ- Adequate knowledge of environmental devel- mental awareness in Norwegian society, the Gov- opments makes it possible to evaluate the impacts ernment will: of our actions and to choose short- and long-term • Expand environmental monitoring pro- policy instruments that will put us in a better posi- grammes and increase the environmental tion to prevent or counteract environmental dam- research effort. age and injury to health. • Take part in the development of the Global The knowledge base is built up through Earth Observation System of Systems research, data collection and reporting. It is equally (GEOSS), a worldwide network for global utili- important to communicate knowledge that has sation of data, for example for monitoring and been acquired to the general public and to deci- for early warning of environmental disasters. sion-makers. Knowledge about the environment • Develop the website State of the Environment and environmental problems must become a key Norway into the central information channel for element of decision-making processes in both the facts and data on the Norwegian environment. public and the private sector. • Follow the guidelines developed by the Web Educational institutions are responsible for a Accessibility Initiative (WAI) for websites that significant proportion of knowledge development. provide environmental information, to ensure The whole school system, including institutions that everybody has equal opportunities for par- that provide vocational training and higher educa- ticipation. tion institutions, gives new generations knowl- • Make the general public and the public admin- edge, attitudes and skills that can be instrumental istration more aware of their rights under the in bringing about sustainable development. The new Environmental Information Act, and pro- media, the Internet and libraries also play an vide a framework that will enable public author- 20 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

ities and businesses to meet their obligations • Integrate environmental education and the nat- under the Act. ural sciences in the school system, for instance • Take steps to provide more environmental by raising the level of expertise among teachers information about products, particularly those and at teacher training institutions. intended for private consumers, and focus on • Further develop, modernise and strengthen the eco-labelling and green certificate schemes. Norwegian Environmental Education Network, • Continue efforts to increase the availability of among other things by linking it more closely product information on the Internet and further to the website State of the Environment Nor- develop the Product Register, for example by way. encouraging the business sector to play a • Take the initiative for closer cooperation larger role. between Norwegian schools and schools in developing countries and Eastern Europe. 2004– 2005 Summary in English: Report No. 21 to the Storting 21 The Government’s Environmental Policy and the State of the Environment in Norway

3 Conservation and sustainable use of biological diversity

3.1 Goals Box 3.1 Goals for conservation and Box 3.1 shows the Government’s goals for the con- sustainable use of biological diversity servation and sustainable use of biological diversity. The strategic objective has been amended to include Norway’s international commitment to Strategic objective: halting the loss of biodiversity. The environment shall be managed in a way that maintains the diversity of habitats and landscape types and ensures that there are 3.2 Policy instruments and measures viable populations of naturally-occurring species: this will ensure that biological diversity The Government will take the following steps to can continue to evolve. In addition, Norway halt the loss of biodiversity by 2010: aims to halt the loss of biodiversity by 2010. • Continue the development of relevant legislation on the basis of the report from the committee appointed to review legislation relating to National targets: biodiversity. 1. A representative selection of Norwegian • Expand survey and monitoring activities habitats shall be protected for future gen- related to biodiversity: this will include continu- erations. ing and improving the national programme to 2. Major disturbance such as infrastructure survey and monitor biodiversity, carrying out development shall be avoided in endan- the next phase of municipal surveys of biodiver- gered habitats, and in vulnerable habitats sity, and starting programmes in marine areas important ecological functions shall be (MAREANO1 and SEAPOP2). maintained. • Strengthen research related to biodiversity. 3. The cultural landscape shall be managed • Revise the Norwegian Red List of threatened in such a way that biological diversity, the species. The next edition should be ready in historical and aesthetic value of the land- 2006, and a major revision of the list will be scape and its accessibility are maintained. completed in 2010. 4. Harvesting and other use of living • Draw up action plans for selected habitat types, resources shall not cause species or popu- groups of species and species in the period lations to become extinct or endangered. 2005–2010, including plans for coral reefs, kelp 5. The introduction of alien species through forests and selected types of cultural landscape human activity shall not damage or limit that require management. ecosystem functions. • Draw up management plans for the most 6. Populations of endangered species and heavily used national parks and other large pro- species for which Norway has a special tected areas, and ensure that an active manage- responsibility shall be maintained or ment regime is pursued in protected areas restored to viable levels. where this is necessary. 7. The needs of future generations shall be • Draw up and implement a national plan for pro- taken into account when managing soil tected marine areas. resources that are suitable for cereal production.

1 The MAREANO project involves a number of institutions, and will among other things map topography, resources, pollution and biodiversity in marine and coastal waters. 2 SEAPOP stands for Seabird Population Management and Petroleum Operations. 22 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

• Draw up proposals for a national action plan for threaten or are already threatening ecosys- the management of genetic resources and con- tems, habitats or other species in Norway and a servation of genetic diversity. review of the economic impacts of alien species • Implement the national plan for management of in Norway. genetic resources for food and agriculture. • Play an active part in strengthening the interna- • Follow an improved and integrated strategy for tional framework for conservation and sustain- maintaining important agricultural landscapes able use of biodiversity. Arrange the fifth inter- and protecting cultivable and cultivated soil. national Trondheim conference on biodiversity • Strengthen the regulatory regime for as many in 2007, which will focus on the international as possible of the marine fish stocks that are goal of achieving by 2010 a significant reduc- used commercially by establishing long-term tion of the current rate of biodiversity loss at the management plans for these stocks. global, regional and national level as a contribu- • Draw up a cross-sectoral national strategy for tion to poverty alleviation and to the benefit of alien species by 2006. This work includes draw- all life on earth. ing up a «black list» of alien species that may 2004– 2005 Summary in English: Report No. 21 to the Storting 23 The Government’s Environmental Policy and the State of the Environment in Norway

4 Outdoor recreation

4.1 Goals 4.2 Policy instruments and measures

Box 4.1 shows the Government’s goals for outdoor The Government will: recreation. Instruments and measures designed to achieve national target 4 are listed in chapter 11.6. • Intensify efforts to promote physical activity, including arranging Outdoor Recreation Year 2005. Box 4.1 Goals for outdoor recreation • Strengthen the legal basis for outdoor recreation activities, including the right of public access to the countryside. Strategic objective: • Establish a forum for outdoor recreation in Everyone shall have the opportunity to take schools, in cooperation with the Directorate for part in outdoor recreation as a healthy and Primary and Secondary Education, the Direc- environmentally sound leisure activity that torate for Health and Social Affairs and NGOs provides a sense of well-being both near their that are active in this field. The aim is to build homes and in the countryside. up expertise in outdoor recreation activities in the school system. • Safeguard a number of large outdoor recreation National targets: areas for public use and safeguard outdoor rec- 1. The tradition of outdoor recreation based reation interests in areas that are no longer on the right of access to uncultivated land required by the Norwegian defence forces. shall be kept up by all sections of the pop- • As part of its focus on the coastal zone, consider ulation. whether to expand the system of coastal parks 2. Children and young people shall be given further west than Lindesnes municipality in the opportunity to develop skills in out- Vest-Agder county. door recreation activities. 3. Areas of value for outdoor recreation shall be safeguarded so that environmentally- friendly access and passage and harvesting of natural resources is promoted and the natural resource base is maintained. 4. Near housing, schools and day care centres, there shall be adequate opportunities for safe access and play and other activities in a varied and continuous green structure, and ready access to surrounding areas of countryside. 24 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

5 The cultural heritage

5.1 Goals 5.2 Policy instruments and measures

Box 5.1 shows the Government’s goals for cultural The Government will: heritage conservation, as they were proposed in the recent white paper on the cultural heritage • Follow a policy that safeguards the full breadth (Report No. 16 (2004–2005) to the Storting). of Norway’s cultural heritage as a repository of knowledge, to provide opportunities for experiencing this heritage and as a catalyst for eco- Box 5.1 Goals for cultural heritage nomic growth. conservation • Follow a policy to ensure that the potential of the cultural heritage is realised more fully than is the case today. This will include a focus on Strategic objective: the development of local communities and com- The diversity of cultural monuments, sites mercial activities on the basis of the cultural and environments shall be managed and heritage in towns and urban settlements, along enhanced as resources for continued active the coast and in the agricultural landscape. A use, as a repository of knowledge, to provide programme for value creation and a knowledge opportunities for experiencing our cultural network for historical properties will be estab- heritage, and as a catalyst for economic lished. growth. A representative selection of cultural • Launch special initiatives targeting children monuments, sites and environments shall be and young people and the cultural heritage of made and managed on a long-term basis. minority groups in Norway. • Provide a framework that will enable municipalities to make use of the cultural heritage in the National targets: development of communities, through develop- 1. Annual losses of cultural monuments, sites ment of the Planning and Building Act. and environments as a result of demoli- • Make use of research, competence-building tion, damage and decay shall be mini- and information to improve access to the cul- mised, and by 2020 shall not exceed 0.5 tural heritage. per cent of the total. 2. Cultural monuments, sites and environments protected under the Cultural Heri- tage Act shall be safeguarded and a stan- dard requiring only normal maintenance shall be achieved by 2020. 3. The selection of permanently protected cultural monuments, sites and environments shall include a wider range in terms of geography, social class, ethnicity, industrial and commercial use and historical periods, and by 2020 a representative selection of these monuments, sites and environments shall be protected under the Cultural Heritage Act. 2004– 2005 Summary in English: Report No. 21 to the Storting 25 The Government’s Environmental Policy and the State of the Environment in Norway

6 Eutrophication and oil pollution

6.1 Goals 6.2 Policy instruments and measures

Box 6.1 shows the Government’s goals for reduc- The Government will: tion of eutrophication and oil pollution. • Implement an integrated and ecosystem-based management regime for marine and coastal waters and freshwater by completing the inte- Box 6.1 Goals for reduction of grated management plan for the Barents Sea eutrophication and oil pollution and drawing up integrated management plans for inland and coastal waters as required by the EU Water Framework Directive. Strategic objective: • Intensify efforts to improve water quality in The water quality in fresh water bodies and Lake Vansjø and any other water bodies where marine areas shall be high enough to there are serious, complex environmental prob- maintain species and ecosystems and to take lems. account of the requirements of human health • Continue efforts to achieve the zero discharge and welfare. goal, i.e. to halt or minimise discharges of environmentally hazardous substances and other substances that may have a negative impact on National targets: the environment from the petroleum industry. 1. Inputs of the nutrients phosphorus and • Continue to play an active part in regional coop- nitrogen to parts of the North Sea that are eration on the marine environment. adversely affected by eutrophication shall • Play its part in ensuring that the Ballast Water be reduced by about 50 per cent by 2005, Convention can enter into force. using 1985 as the base year. • Take steps to ratify the Ballast Water Conven- 2. Operational discharges of oil shall not tion in the course of 2005. result in unacceptable injury to health or • Implement the provisions of the Ballast Water environmental damage. The risk of envi- Convention nationally and through regional ronmental damage and other adverse cooperation. effects of acute pollution shall be accept- • Take steps to monitor the introduction of alien able. species via ballast water and sediments from ships. • Consider the establishment of a national forum for environmentally sound shipping in cooperation with the industry. 26 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

7 Hazardous substances

7.1 Goals Box 7.1 Goals for reducing the risks Box 7.1 shows the Government’s goals for reduc- associated with hazardous substances ing the risks associated with hazardous substances. The wording of the national target for polluted Strategic objective: soil, water and sediments has been changed, and it Emissions and use of hazardous chemicals has been split into two targets (one for soil and one shall not cause injury to health or damage the for sediments). productivity of the natural environment and its capacity for self-renewal. Concentrations of the most hazardous chemicals in the environ- 7.2 Policy instruments and measures ment shall be reduced towards background values for naturally occurring substances and The Government will: close to zero concentrations for man-made • Review the possibility of prohibiting the use of synthetic substances. environmentally hazardous substances in products intended for the private consumer. • Implement the new action plans for mercury National targets: and for PFOS and PFOS-related compounds. 1. Emissions of certain of the most environ- • Propose new substances for inclusion in inter- mentally hazardous substances shall be national agreements such as the Stockholm eliminated or substantially reduced by Convention on Persistent Organic Pollutants. 2000, 2005 or 2010. • Give priority to efforts to remove substances 2. Emissions and use of substances that pose that are hazardous to health and the environ- a serious threat to health or the environment from products intended for children or ment shall be continuously reduced with a limit their use in such products. view to eliminating them within one gener- • Ensure stricter control of compliance with leg- ation (by the year 2020). islation relating to environmentally hazardous 3. The risk that emissions and use of chemi- substances. cals will cause injury to health or environ- • Ensure that appropriate action is taken at all mental damage shall be reduced substan- contaminated sites by 2006. tially. • Intensify efforts to ensure that polluted sedi- 4. The dispersal of the most environmentally ments do not give rise to serious pollution prob- hazardous substances from contaminated lems. soil shall be stopped or substantially reduced. Steps to reduce the dispersal of other hazardous substances will be taken on the basis of case-by-case risk assess- ments. 5. Contamination of sediments with substances that are hazardous to health or the environment shall not give rise to serious pollution problems. 2004– 2005 Summary in English: Report No. 21 to the Storting 27 The Government’s Environmental Policy and the State of the Environment in Norway

8 Waste management and recovery

8.1 Goals 8.2 Policy instruments and measures

Box 8.1 shows the Government’s goals for waste The Government will: management and recovery. • Take steps to raise the proportion of waste recovered, with the aim of reaching 80 per cent. Box 8.1 Goals for waste management and • Implement a strategy for biodegradable waste, recovery which will include – the introduction of waste management plans as a mandatory element of all building Strategic objective: projects, Damage to people and the environment cau- – the prohibition of landfilling of biodegrad- sed by waste is to be minimised. To achieve able waste, planned to take effect from 1 this, waste problems are to be solved by January 2009. means of policy instruments that ensure a • Implement a new strategy to increase the pro- good socio-economic balance between the portion of hazardous waste delivered to quantity of waste generated and the quanti- approved facilities. ties recovered, incinerated and landfilled. • Play an active role in the development of new legally binding and globally applicable rules to ensure that ship recycling is carried out in an National targets: environmentally sound way. 1. The growth in the quantity of waste generated shall be considerably lower than the rate of economic growth. 2. The proportion of waste recovered is to be raised to about 75 per cent of the total quantity in 2010 and subsequently to 80 per cent. This is based on the principle that the quantity of waste recovered should be increased to a level that is appropriate in economic and environmental terms. 3. Practically all hazardous waste is to be dealt with in an appropriate way, so that it is either recycled or sufficient treatment capacity is provided within Norway. 28 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

9 Climate change, air pollution and noise

market for emissions trading as soon as possi- 9.1 Climate ble. • Consider the establishment of long-term cli- 9.1.1 Goals mate policy goals, based on the conclusions of Box 9.1 shows the Government’s goals for the the commission appointed to assess how Nor- reduction of greenhouse gas emissions. way can become a low-emission society by 2050. 9.1.2 Policy instruments and measures • Continue to give priority to the objective of bringing about a shift in Norway’s energy pro- The Government will: duction and use and achieving the national tar- • Ensure that Norway plays an active role in get of a total of 12 TWh per year in energy sav- negotiations towards a more ambitious climate ings and new renewable energy production by agreement containing stricter and more com- 2010. An important tool for this work is the prehensive commitments to reduce emissions Energy Fund: its funding has been strength- after the end of the first commitment period ened, and it contains NOK 660 million in 2005. under the Kyoto Protocol in 2012. This must • Follow up the strategy for reducing the use of include both the US and those developing coun- mineral oils for heating by 25 per cent during tries that generate large volumes of emissions the first Kyoto commitment period, 2008–2012. or whose emissions are rising rapidly. • Continue to encourage greater use of waste as • Cut Norway’s emissions in the period 2005– a source of energy to replace fossil fuels. 2007 by means of the domestic emissions trad- • Continue efforts channelled through Gassnova ing scheme and the arrangement with opera- (the state centre for sustainable gas technolo- tors in the process industry who are not at this gies), the fund for sustainable gas technologies stage included in the scheme. and the new research programme on environ- • Cooperate closely with other countries, espe- mentally-friendly gas technologies (CLIMIT) cially the EU, on developing an international to develop energy-efficient and profitable designs for gas-fired power plants with CO2 capture and storage. • Continue taxation and refund schemes for Box 9.1 Goals for the reduction of HFCs and PFCs, which are moderately to very greenhouse gas emissions potent greenhouse gases. • Maintain the agreement between the Ministry Strategic objective: of the Environment and the Norwegian Elec- Concentrations of greenhouse gases shall be tricity Industry Association on reduction of SF6 stabilised at a level that will prevent dange- emissions from the electricity sector. rous anthropogenic interference with the cli- • Continue to limit emissions from the petroleum mate system. industry by focusing on technological improvements and the development of new technology. • Evaluate new ways of adapting Norwegian soci- National target: ety to climate change. Norway shall comply with its commitment • Follow up the report of the Arctic Climate under the Kyoto Protocol, which is that its Impact Assessment (ACIA) at national and greenhouse gas emissions in the period international level. At national level, one of the 2008–2012 must not be more than 1 per cent Government’s responses will be to intensify higher than in 1990. research and monitoring in fields where the ACIA revealed gaps in our knowledge. 2004– 2005 Summary in English: Report No. 21 to the Storting 29 The Government’s Environmental Policy and the State of the Environment in Norway

• Intensify climate-related research, for example through the research programme NORKLIMA, 9.3 Long-range air pollution and monitoring activities. Encourage analyses of the framework and relevant instruments of 9.3.1 Goals climate policy, and focus on research on tech- Box 9.3 shows the Government’s goals for the nology to reduce emissions of CO2 and other reduction of emissions of long-range air pollutants. greenhouse gases. • Analyse the overall potential for local climate 9.3.2 Policy instruments and measures measures (see Chapter 2.6 on environmental policy at local level). The Government will: • Introduce the necessary measures and instruments needed to ensure that Norway meets its 9.2 Depletion of the ozone layer commitment to reduce emissions of nitrogen oxides (NOx) under the Gothenburg Protocol 9.2.1 Goals by 2010. The most important of these will be as Box 9.2 shows the Government’s goals for phasing follows: out the use of ozone-depleting substances. – Lay down emission limits to air pursuant to the Seaworthiness Act for national sea traf- 9.2.2 Policy instruments and measures The Government will: Box 9.3 Goals for reductions in emissions • Work actively to further develop a framework of long-range air pollutants that will make it easier for developing countries and Eastern European countries to meet their existing commitments and if appropriate under- Strategic objective: take new commitments under the Montreal Emissions of sulphur dioxide, nitrogen oxi- Protocol. des, volatile organic compounds and ammo- • Continue work under the Montreal Protocol to nia shall be reduced so that critical loads and ensure that phasing out ozone-depleting sub- levels are not exceeded, thus avoiding envi- stances more rapidly does not result in more ronmental damage, and so that injury to use of HFCs and other substances that enhance health is avoided. the greenhouse effect. National targets: 1. Annual emissions of sulphur dioxide Box 9.2 Goals for phasing out the use of (SO2) shall not exceed 22 000 tonnes from ozone-depleting substances 2010 onwards. 2. Annual emissions of nitrogen oxides Strategic objective: (NOx) shall not exceed 156 000 tonnes All production and use of ozone-depleting from 2010 onwards, and annual emissions substances shall be eliminated. in the period up to 2010 shall not exceed the 1987 level (230 000 tonnes). 3. Annual emissions of volatile organic com- National targets: pounds (VOCs) shall not exceed 195 000 1. Consumption of halons, all types of chlo- tonnes from 2010 onwards. In the period rofluorocarbons (CFCs), tetrachlo- up to 2010, annual emissions shall not romethane, methyl chloroform and hydro- exceed the 1988 level (252 000 tonnes), bromofluorocarbons (HBFCs) shall be and annual emissions from the entire eliminated. mainland and the Economic Zone of Nor- 2. Consumption of methyl bromide shall be way south of 620 N shall not exceed 70 per stabilised in 1995 and phased out by 2005. cent of the 1989 level (191 000 tonnes). 3. Consumption of hydrochlorofluorocar- 4. Annual emissions of ammonia (NH3) shall bons (HCFCs) shall be stabilised in 1995 not exceed 23 000 tonnes from 2010 and phased out by 2010. onwards. 30 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

fic and the fishing fleet, to apply to both new and existing vessels. Box 9.4 Goals for improvements in air – Lay down new emission limits pursuant to quality the Pollution Control Act for manufacturing industries in mainland Norway and electricity generation on the continental shelf. Strategic objective: – Facilitate flexible solutions for the imple- Local air pollution problems shall be preven- mentation of stricter requirements than ted and reduced to take account of the requi- those that follow from the rules on inte- rements of human health and welfare. grated pollution prevention and control (IPPC Directive) and emission limits for national sea traffic and the fishing fleet. This National targets: will ensure that the NOx target is achieved 1. The 24-hour mean concentration of partic- as cost-effectively as possible. Further ulate matter (PM10) shall not exceed 50 review a system that is as cross-sectoral as μg/m3 on more than 25 days per year by possible, including tax levels differentiated 2005 and 7 days per year by 2010. according to the level of NOx emissions 2. By 2010, the hourly mean concentration of and/or third-party emission reductions. nitrogen dioxide (NO2) shall not exceed Design policy instruments to ensure that 150 μg/m3 for more than 8 hours per year. Norway’s commitment is achieved by 2010, 3. By 2005, the 24-hour mean concentration to provide a predictable framework, and to of sulphur dioxide (SO2) shall not exceed provide good incentives across sectors. 90 μg/m3. – Consider whether to provide grants 4. By 2010, the annual mean concentration of towards measures to reduce NOx emis- benzene shall not exceed 2 μg/m3, mea- sions from national sea traffic and the fish- sured as urban background concentration. ing fleet. – Consider whether to differentiate the road tax for vehicles of maximum total weight up to 12 tonnes according to their NOx emissions. 9.4 Local air quality • Play an active part in revision of the Gothen- burg Protocol, with a view to achieving further 9.4.1 Goals environmental improvement in Norway. Box 9.4 shows the Government’s goals for • Take the initiative vis-à-vis the International improvements in air quality. Maritime Organisation (IMO) for the development of international rules that will effectively 9.4.2 Policy instruments and measures reduce emissions to air from ships in cases where critical loads for ecosystems and human The Government will: health are exceeded partly as a result of these • Consider new measures targeted at the sources emissions. of emissions, focusing on fuelwood use, con- • Follow up the new strategy adopted by the struction machinery, ships and buses. EMEP programme (Cooperative Programme • Consider various measures related to land-use for Monitoring and Evaluation of the Long- and transport planning, including low-emission range Transmission of Air Pollutants in zones (where the focus is on reducing emis- Europe). sions from road vehicles), further testing of environmental action zones (where the focus is on factors that affect health and welfare) and whether there is a need to draw up planning guidelines. 2004– 2005 Summary in English: Report No. 21 to the Storting 31 The Government’s Environmental Policy and the State of the Environment in Norway

9.5 Noise Box 9.5 Goals for noise reduction 9.5.1 Goals Box 9.5 shows the Government’s goals for noise Strategic objective: reduction. Noise problems are to be prevented and reduced to take account of the requirements of human health and welfare. 9.5.2 Policy instruments and measures The Government will: • Reduce noise from road traffic by means of National target: measures targeted at the sources of emissions. By 2010, noise annoyance shall be reduced by • Consider whether to introduce stricter limits 25 per cent from the 1999 level. for indoor noise levels. 32 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

10 International environmental cooperation, environmental assistance, and environmental protection in the polar regions

10.1.2 Policy instruments and measures Box 10.1 Goals for international The Government will: environmental cooperation and environmental assistance • Work actively vis-à-vis EU institutions at all levels to ensure that Norwegian interests are safeguarded when new environmental legislation is Strategic objective: developed. International cooperation on environmental • Make use of the opportunities offered by the issues shall be a means of reducing global new EEA Financial Mechanisms to promote and regional environmental problems and Norwegian interests vis-à-vis the new member environmental damage in Norway caused by states. activities and emissions in other countries, promoting sustainable development and improvements in the state of the environment 10.2 International environmental in areas adjacent to Norway and in developing bodies countries, and ensuring that international agreements and legislation provide a fram- Nordic environmental cooperation, OECD Envi- ework that does not weaken Norway’s natio- ronment Policy Committee, UNEP, GEF and CSD. nal environmental policy.

10.2.1 Goals Box 10.4 shows the Government’s goals for cooperation in international environmental bodies. 10.1 EU/EEA environmental legislation

10.1.1 Goals Box 10.3 Goals for cooperation within the framework of international agreements Box 10.2 shows the Government’s goals for cooperation within the framework of the EU and EEA. with implications for the environment

National targets Norway will seek to ensure that the rules of the WTO system, the development of EU/ EEA legislation and EFTA’s free trade agreements with third parties provide for the use of environmental policy instruments and Box 10.2 Goals for cooperation within the incorporate sustainable development con- framework of the EU and EEA cerns. Norway will seek to ensure that FAO, National target: UNDP, the World Bank and the World Intel- Norway will seek to ensure that EU/EEA lectual Property Organisation (WIPO) incor- legislation provides a high level of environ- porate environmental and sustainable mental protection and promotes sustainable development concerns more fully into their development. operations. 2004– 2005 Summary in English: Report No. 21 to the Storting 33 The Government’s Environmental Policy and the State of the Environment in Norway

10.2.2 Policy instruments and measures • Seek to ensure that relevant multilateral organisations such as FAO, UNDP, the World Bank The Government will: and WIPO incorporate environmental and sus- • Make use of opportunities to influence the tainable development concerns more fully into development of EU environmental legislation their operations. within the framework of Nordic environmental • Evaluate the possibility of establishing a seed cooperation, and work towards ambitious tar- depository for agricultural material in Svalbard gets for multilateral environmental agree- and work towards more sustainable manage- ments. ment of agricultural genetic resources, for •Follow up the OECD Environmental Strategy, example through FAO. focusing particularly on taking part in efforts to • Work to achieve a good balance between intel- decouple environmental pressures from eco- lectual property rights and the protection of tra- nomic growth, and calculate what the costs will ditional knowledge in the field of genetic be if the OECD environmental strategy is not resources, for example through WIPO. implemented. • Maintain its financial support to the UN Global • Focus on UNEP as the main forum for global Compact and UNEP’s work in the field of corpo- environmental policy and take an active part in rate social responsibility, including the efforts UNEP’s strategic work, including the follow-up of the Global Reporting Initiative (GRI) to of the World Summit on Sustainable Develop- develop sustainability reporting guidelines. ment in Johannesburg. • Advocate an increase in the proportion of GEF funds used for projects related to environmen- 10.4 Bilateral and regional tally hazardous substances. environmental cooperation

Environment-related development cooperation, 10.3 International agreements with Eastern Europe, the Caucasus and Central Asia. implications for the environment

10.3.1 Goals 10.4.1 Goals Box 10.3 shows the Government’s goals for inter- Box 10.5 shows the Government’s goals for bilat- national cooperation that is not specifically related eral and regional environmental cooperation. to the environment. 10.4.2 Policy instruments and measures 10.3.2 Policy instruments and measures The Government will: The Government will: • Draw up an action plan for incorporating envi- • Work actively to ensure that trade and invest- ronmental considerations and sound natural ment agreements provide adequately for the resource management into Norwegian develop- use of environmental policy instruments. ment cooperation. • Integrate environmental considerations into the central priority areas of Norwegian develop-

Box 10.4 Goals for cooperation in international environmental bodies Box 10.5 Goals for bilateral and regional environmental cooperation National target: Cooperation in the Nordic region and adja- Global and regional cooperation bodies shall cent areas shall lead to improvements in the be developed into effective tools for sustaina- state of the environment, protect and enhance ble development, the achievement of global the natural and cultural heritage in these and regional environmental targets and effec- areas, and help to reduce and prevent trans- tive implementation of international environ- boundary pollution that may have an impact mental conventions. on the environment or economic activity in Norway. 34 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

ment cooperation (agriculture, fisheries, indus- with the environmental protection goals and trial development and education). legislation for the archipelago. • Seek to ensure that development cooperation • Establish a new protected area around Wijde- in general, and cooperation with China, Indone- fjorden in Svalbard to safeguard the unique sia and South Africa in particular, promotes Arctic vegetation, establish a new protected implementation of multilateral environmental area on Jan Mayen to safeguard the island’s agreements by Norway’s partner countries. unique natural environment and cultural heri- • Follow up the UNECE environmental strategy tage, and draw up new regulations for Jan for countries of Eastern Europe, Caucasus and Mayen relating to the cultural heritage. Central Asia, giving priority to water, natural • Strengthen cooperation with Russia on the resource management and capacity building, marine environment. and follow up the bilateral cooperation agree- • Intensify and coordinate efforts to improve the ments between Norway and Kyrgyzstan and environment in northwestern Russia through Norway and Kazakhstan. the Barents Council, the Arctic Council and bilateral cooperation, focusing on the priority areas of environmental policy. • Play an active role in international efforts to 10.5 Environmental protection in reduce emissions of radioactive substances to the polar regions the marine environment. • Strengthen efforts to reduce the risk of emis- 10.5.1 Goals sions of radioactive substances in the Arctic, in Box 10.6 shows the Government’s goals for envi- close cooperation with the Russian authorities ronmental protection in the polar regions. and the international community. • Seek to ensure that the impacts and risks of 10.5.2 Policy instruments and measures radioactive emissions to the environment from Norwegian and foreign sources are so low that The Government will: internationally accepted levels for concentra- • Propose amendments to the Svalbard Environ- tions in biota are not exceeded. mental Protection Act so that areas of special • Strengthen Norway’s position in the Antarctic conservation value are automatically protected. cooperation and Norwegian environmental • Evaluate the regulatory and other measures research in the Antarctic through activity at the needed to ensure that cruise traffic and other research station Troll, which was officially shipping in Svalbard operates in accordance opened for year-round use in February 2005. 2004– 2005 Summary in English: Report No. 21 to the Storting 35 The Government’s Environmental Policy and the State of the Environment in Norway

Box 10.6 Environmental protection in the polar regions

Strategic objective: 4. Efforts shall be made to retain the extent of The large continuous wilderness areas in Sval- continuous wilderness areas in Svalbard. By bard and the Antarctic shall together with the 2002, a representative cross-section of Sval- cultural heritage in these areas be protected bard’s natural environment shall be pro- against major developments and environmental tected against major developments and envi- pressures. Svalbard shall be one of the best ronmental pressures by the establishment of managed wilderness areas in the world, and the specially protected areas. Steps shall be settlements shall be soundly managed in order taken to give adequate protection to marine to protect the environment and promote human areas of particular conservation value around welfare. Norway will work to ensure that its Svalbard. neighbouring Arctic seas remain some of the 5. Steps shall be taken to preserve a representa- cleanest in the world, and that their resources tive selection of structures and sites belong- are used within limits that will ensure the ing to the cultural heritage of Svalbard and maintenance of biological diversity both in the Jan Mayen as scientific source material and short term and in the long term. Norway will as a source of emotional and aesthetic expe- take part in efforts to reduce emissions of radio- rience for future generations. Losses of such active substances and the risk of such emis- structures and sites as a result of human sions that may result in pollution of the activity shall not exceed an average of 0.1 per Norwegian environment. cent of the total per year. 6. Transport and travel in Svalbard shall not cause serious or permanent damage to the National targets: vegetation or disturb animal life. Opportuni- 1. Cooperation in the Nordic region and adja- ties for experiencing the natural environ- cent areas and in the Arctic region shall lead ment undisturbed by motor traffic shall also to improvements in the state of the environ- be ensured in areas that are easily accessible ment, protect and enhance the natural and from the settlements. cultural heritage in these areas, and help to 7. Cooperation with the Russian authorities reduce and prevent transboundary pollution shall be a means of lowering the risk of radio- that may have an impact on the environment active pollution of Norwegian land and sea or economic activity in Norway. territory in order to avoid possible adverse 2. Cooperation shall be used to put the authori- effects on health, the environment or eco- ties and business and industry in Russia in a nomic activity. better position to control the country’s own 8. Emissions of radioactive substances from environmental problems properly, and to Norwegian sources shall be limited to levels integrate Russia’s environmental authorities that do not have an adverse effect on the nat- into international and regional cooperation. ural environment. 3. Utilisation of resources in Norway’s neigh- 9. In areas where radioactive pollution has bouring Arctic seas shall not cause species to been identified, steps shall be taken to become endangered or extinct. Populations ensure that no population groups exceed rec- of species that are currently believed to be ommended radiation exposure limits endangered or otherwise adversely affected through consumption of natural products or by land use, harvesting or pollution shall be outdoor recreation activities. conserved and if possible restored. 36 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

11 Regional planning and land-use policy

tural landscape shall be documented and man- Box 11.1 Goals for land-use policy agement plans put in place by 2010. 5. Coordinated planning procedures, including evaluation of user and environmental interests, Strategic objective: shall be followed for the establishment of Land-use management in Norway shall energy generation plants requiring large areas protect and enhance the natural environment, of land. cultural environment, landscapes and other important qualities of the surroundings 11.2.1 Policy instruments and measures throughout the country. A coordinated land- use policy shall ensure coherence between The Government will: Norway’s goals for local and regional • Strengthen municipal and regional planning restructuring and its goals for protection of pursuant to the Planning and Building Act as a the natural environment and cultural heri- tool for coordinating land-use management and tage. value creation in areas designated as agricultural areas, areas of natural environment and outdoor recreation areas. 11.1 Goals • Facilitate greater cooperation between various public- and private-sector actors in the manage- Box 11.1 shows the Government’s goals for land- ment of mountain areas and uncultivated land. use policy. • Safeguard the key role of wild reindeer in the Norwegian mountain fauna through regional plans and the establishment of conservation 11.2 Land-use management in areas areas for wild reindeer. Norway is home to designated as agricultural areas, most of the wild reindeer in Europe, and the areas of natural environment and Government intends to establish some areas outdoor recreation areas that reflect the pattern of reindeer migration into Norway and others that are important for National targets: their survival in Norway in the future. 1. Mountain areas shall be managed through a • Promote the development of wind power as an whole-landscape approach that safeguards important renewable energy source by coordi- their cultural and natural resources while pro- nating procedures under the Planning and viding opportunities for appropriate types of Building Act and the Energy Act. commercial development and outdoor recre- • Take biodiversity and outdoor recreation con- ation. cerns into consideration to a greater extent dur- 2. The environmental qualities of landscapes shall ing planning processes. be safeguarded and developed through • Give greater emphasis to landscapes in land- improved knowledge and targeted planning use management, in accordance with the and land-use policy. requirements of the European Landscape Con- 3. Areas of wild reindeer habitat shall be safe- vention. guarded. • Provide tools that will enable municipalities to 4. The annual conversion of high-quality arable draw up an overall strategy for safeguarding land for other purposes than agriculture shall important agricultural landscapes and protect- be halved. Particularly valuable areas of cul- ing cultivated and cultivable land. 2004– 2005 Summary in English: Report No. 21 to the Storting 37 The Government’s Environmental Policy and the State of the Environment in Norway

11.3 A proactive policy for the 11.5 Adapting holiday housing shoreline developments to the environment National target: The environmental and recreational qualities of the National target: coastal zone shall be safeguarded, and easy access Holiday housing shall be sited and designed to har- to the shoreline shall be provided for the general monise with the landscape and its environmental public. qualities, with a focus on resource use and aesthetic qualities. 11.3.1 Policy instruments and measures The Government will: 11.5.1 Policy instruments and measures • Encourage municipalities, county authorities The Government will: and county governors to follow a restrictive line • Promote long-term, integrated planning of holi- when considering planning proposals and appli- day housing to ensure that there is a varied cations for exemptions to the ban on building stock of holiday housing in accordance with less than 100 metres from the shoreline. national and regional social and environmental • Clarify what legal authority the municipalities goals. have for removing barriers to public access and • Set out the main principles to be followed dur- passage near the shoreline. ing municipal and regional planning relating to • Safeguard the most attractive areas along the holiday housing. shoreline and make provision for public access. • Develop criteria and tools to ensure that high • Establish a national network for coastal zone standards are maintained in holiday housing management. areas. • Give priority to the coastal zone when following • Obtain better information on the energy impact up the work of the committee appointed to of the construction and use of holiday housing, review the planning legislation. and evaluate instruments that can be used to manage energy types and use. 11.4 A proactive land-use and natural resource policy for river basins 11.6 Land use and the environment in towns and urban settlements National targets: Land-use policy for river systems shall be based on Urban settlement development shall promote a an integrated approach to management of the river high quality of life and good health through good landscape, zones adjoining watercourses and water urban planning and design, environmentally resources. friendly transport and the provision of good, easily accessible outdoor areas. 11.4.1 Policy instruments and measures Near housing, schools and day care centres, there shall be adequate opportunities for safe The Government will: access and play and other activities in a varied and • Establish an integrated land-use policy for the continuous green structure, and ready access to zones adjoining watercourses and ensure that surrounding areas of countryside. planning and exemption routines safeguard national and regional interests. 11.6.1 Policy instruments and measures • Take steps to safeguard river landscapes as a resource for outdoor recreation and as impor- The Government will: tant areas for biological diversity, and to protect • Develop criteria and tools to ensure high qual- them from pollution and erosion. ity in urban development processes. • Strengthen the Planning and Building Act as a • Develop models and tools for the development tool for safeguarding drinking water and of town centres and the establishment of envi- groundwater resources. ronmental action zones. 38 Summary in English: Report No. 21 to the Storting 2004– 2005 The Government’s Environmental Policy and the State of the Environment in Norway

• Encourage the business sector to focus more • Follow up the action plan for greater physical on reducing the environmental impact of work- activity and give more emphasis to public related travel. health in planning processes. • Draw up national policy guidelines for universal • Evaluate and if appropriate revise national pol- design. icy guidelines to give more weight to the interests of children and young people.