UNEP programme

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COMMITTEE GUIDEUnited Nations Environment

ProgrammeDirector: Yiqun Wang, Rijksuniversiteit Groningen

Assistant Director: Tom Vesters, Rijksuniversiteit Groningen

[email protected]



LIMUN 2011 – United Nations Environment Programme – Committee Guide !"

Message from the Committee Directors Yiqun Wang – Director

Dear Delegates, "

It is my distinguished pleasure to welcome you to the twelfthsession of the London International Model United Nations. Myname is Yiqun Wang and I will be your Director for thisconference. I am currently an IR-student at the University of Groningen, located in a picturesque and historical town in TheNetherlands. Being born in China, having lived in Budapest for several years, and moved to Amsterdam from a young age,studying international affairs seems a logical step in my life.There, I was introduced to the concept of MUN, and where Iended up participating twice as a delegate: as Argentina in theGeneral Assembly (TEIMUN 2008), followed by the UnitedKingdom in the Security Council (TEIMUN 2009). In 2010, I co-

Chaired the Security Council of GrunnMUN, and I co-Chaired the General Assembly inTEIMUN. This year, I am also selected as the Chair of UN Women in GIMUN and as Chair of the Security Council in TEIMUN. Aside from my degree and MUN, I enjoy travelling,reading a good book, playing the piano, and spending time with family and friends. I lookforward seeing you all in February and I wish you all the best with your preparations.

Warmest Regards,

Yiqun

Tom Vesters – Assistant Director

Hey all,

First of, let me welcome you all to the UNEP committee,LIMUN 2011. My name is Tom Vesters, and I will be your Assistant Director. I study American Studies at theUniversity of Groningen, a great city in the north of theNetherlands, my native country where I have lived for all butone year of my life, in which I attended high school inCanada instead.

I have been actively MUNing since March 2010, when Iattended GrunnMUN 2010 as the delegate from Canada inthe ECOSOC. Subsequently I attended UNISUN 2010 as

Prince Bismarck for the Berlin Conference of 1884-5, RiMUN 2010 as Sir John Simon inthe British WWII Cabinet and lastly SMUN 2010 as co-delegate for Burkina Faso in theSecurity Council. I got named Best Delegate in two of these. Right now I am also part of the TEIMUN 2011 board. I have no official chairing experience, however I have chairedquite some workshops in MUN-style, and look forward to applying this knowledge toLIMUN.

Apart from MUNing, you'll find me cheering on FC Twente, running (as a sport), reading,gaming, begging pubs to stay open longer, complaining about politicians, travelling aroundin a foreign country or just sitting back and relaxing.

I look forward working with you all to make LIMUN 2011 an unforgettable experience!

See you in February,Tom



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Introduction to the Committee

The United Nations Environment Programme is the designated authority of the UnitedNations in environmental issues.

Its mandate is to coordinate the development of environmental policy consensus bykeeping the global environment under review and bringing emerging issues to the

attention of governments and the international community for action. The mandateand objectives of UNEP emanate from United Nations General Assembly resolution2997 (XXVII) of 15 December 1972 and subsequent amendments adopted atUNCED in 1992, the Nairobi Declaration on the Role and Mandate of UNEP,adopted at the Nineteenth Session of the UNEP Governing Council, and the MalmöMinisterial Declaration of 31 May, 2000. (UNEP, n.d.)

According to the main page of UNEP’s website, their mission is “to provide leadership andencourage partnership in caring for the environment by inspiring, informing, and enablingnations and peoples to improve their quality of life without compromising that of futuregenerations” (UNEP, n.d.). Since its creation by the UN General Assembly in 1972, UNEP

has set quite some milestones, including the 1987 Montreal Protocol on substances thatDeplete the Ozone Layer, the establishment of the Intergovernmental Panel on ClimateChange (IPCC) in 1988, the 1992 Convention on Biological Diversity, and the CartagenaProtocol on Biosafety adopted to address issue of genetically modified organisms in 2000(UNEP, n.d.). In 1997, the Nairobi Declaration redefines and strengthens UNEP’s role andmandate was adopted. The following two sub-articles made it possible for UNEP to debatethe topics to be discussed during this conference. Article 3d and article 3e:

d) To strengthen its role in the coordination of environmental activities in the UnitedNations system in the field of the environment, as well as its role as anImplementing Agency of the Global Environment Facility, based on its comparativeadvantage and scientific and technical expertise;

e) To promote greater awareness and facilitate effective cooperation among allsectors of society and actors involved in the implementation of the internationalenvironmental agenda, and to serve as an effective link between the scientificcommunity and policy makers at the national and international levels. (UNEP, n.d.)

UNEP work encompasses:! Assessing global, regional and national environmental conditions and trends! Developing international and national environmental instruments! Strengthening institutions for the wise management of the environment

! Facilitating the transfer of knowledge and technology for sustainable development! Encouraging new partnerships and mind-sets within civil society and the privatesector.

In order to accomplish all this, UNEP works in close cooperation with a wide range of partners, including United Nations entities, international organizations, nationalgovernments, non-governmental organizations, the private sector and civil society.

To ensure its global effectiveness UNEP supports six regional offices, plus agrowing network of centres of excellence such as the Global Resource InformationDatabase (GRID) centres and the UNEP World Conservation Monitoring Centre

(UNEP-WCMC). UNEP also has major offices in Geneva and Paris, where itsDivision of Technology, Industry and Economics is situated. (UNEP, n.d.)



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Acronyms

ERC – Emergency Relief Coordinator

EU – European Union

ASEAN – Association of Southeast Asian NationsBSEC – Organization of the Black Sea Economic Cooperation

IRFC – International Federation of Red Cross

JEU – Joint UNEP/OCHA Environment Unit

MIC – Monitoring and Information Centre

OCHA – United Nations Office for Coordination of Humanitarian Affairs

SOLAS – Convention for the Safety of Life At Sea

UN – United Nations

UNEP – United Nations Environment Programme

UNGA – United Nations General Assembly

UNHCR – United Nations High Commissioner for Refugees

UNU – United Nations University



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Topic A: Addressing the Political Rights of Environmental Refugees

IntroductionFor as long as natural disasters have occurred, environmental refugees have existed.

Unfortunately, this topic has not received the required attention from the internationalcommunity considering the recognition of further refugees is still a rather sensitive politicaltopic. However, the debate around the recognition of this concept about a group of peoplewho are forced to leave their home because of threats from the natural environment is nota recent phenomenon. This issue has raised more attention due to the increasing number of environmental disasters, which have led to the current problem for the amount of environmental refugees has exceeded that of the political refugees.

This unsolved problem is placing extra burden on the environment, which consequentlyforms a threat to the future of all human being. Therefore, it is the duty of the UnitedNations Environmental Program to request the international community to take initiatives inaddressing this matter. This committee guide aims to address this problem, explaining theimportance for this phenomenon to receive priority in the international agenda, and provideguidance as to which direction the policy options should be focussing on. Furthermore, thisguide will help you understand as to why legal protection must be given to environmentalrefugees in order to protect the environment and thus to maintain international peace andsecurity.

Historical and Recent DevelopmentsEnvironmental refugees are the consequence of migration due to environmental change.This change is caused by changes in the climate such as land degradation, pollution,droughts, floods, sea-level rise etc., threatening the traditional lifestyles of localinhabitants, while dissolving coastal territories (Kirby 2008, p. 9). Due to natural disasterssuch as droughts, cyclones, floods, tsunamis, wild fires, and desert expansions, manypeople are forced to leave their homes and to move to safer area to build a new life (Kirby2008, p. 9). This human mobility has often been confused with economic refugees, whichis a different concept. With economic refugees, migration is often encouraged in the hope



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of increasing one’s economic prospects, while with environmental refugees, migration isoften forced by natural disasters that threaten human security in certain areas.

Currently, the United Nations High Commissioner for Refugees (UNHCR) – established in1951 by the Convention Relating to the Status of Refugees – defines a refugee as:

Someone who owing to a well-founded fear of being persecuted for reasons of race,religion, nationality, membership of a particular social group or political opinion, isoutside the country of his nationality, and is unable to, or owing to such fear, isunwilling to avail himself of the protection of that country. ( Refugees Convention ,1951)

Parties of this convention have committed themselves to the obligations toward theserefugees and the international community by granting the refugees with legal status,economic rights, and providing them with welfare, freedom, and social security ( RefugeesConvention , 1951). In 1967, the Protocol Relating to the Status of Refugees was adopted,which is the only Protocol to this treaty. Aside from this Convention, there is no other

international agreement addressing the rights of refugees.Since this Convention only guarantees rights to those refugees who have fled frompersecution, new measures should be taken in granting the same rights for those refugeeswho have to flee from environmental threats. Without these rights that allow them the“access to financial grants, food, tools, shelter, schools and clinics through governmentsand international organisations,” these refugees are currently treated equally as economicmigrants, who chose to move “in order to improve the future prospects of themselves andtheir families” and who are often treated with “hardship and hostility,” while environmentalrefugees are forced to leave because of natural insecurities and “have lost everything”(Anon., Environmental Refugees , n.d.; Anon., Refugees, n.d. ; Linde 3; Kakissis, 2010).

Unfortunately, states are often discouraged to recognise additional refugees to thecurrently existing ones according to the Refugee Convention. The amounts of security,economic and environmental burdens that accompany the refugees have made this topic



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Finally, the lack of protection of environmental refugees often leads to demoralisation of those people who have lost everything. When there is no international law protecting therights of these refugees, the fear that comes along with increasing insecurity after havinglost everything will only intensify. Furthermore, if a state cannot respond to the disaster accordingly, conflict will arise soon after. A recent example is the situation in Haiti; after adevastating earthquake hit the island, people were left without shelter, food, or healthcare.

The inability of the Haitian government and the international community to respondimmediately and provide basic commodities to those victims, led to the emergence of violent groups. Without international agreements and facilities, it is challenging to respondeffectively and time-efficiently to natural disasters and its victims, especially in developingcountries. With each day that passes after the disaster, people will become moredesperate. As was the case with Haiti, desperation has led to the downward spiral of human security. Due to the lack of legal rights recognised to these refugees, some victimswere reluctant to escape their homes in favour of moving to a safer place, where they willbe treated with hostility.

As a result, legal protection must be given to environmental refugees in order to maintain

international security and to further economic progress. Due to the increasing amount of natural disasters attributable to climate change, the number of environmental refugees hasexpanded so rapidly that they can no longer be ignored. The international communityshould address this issue by either including the environmental refugees into the existingConvention for Refugees or compose a new Convention. Should the internationalcommunity fail to do so, the consequences might be disastrous. In the examples provenearlier, security is often the first factor that will be threatened, followed by politicalinstability, social demoralisation, and economic and environmental consequences. Theworld continues moving and the environment is playing a larger part in the world stage. Inorder to safeguard the international security from these contemporary threats, we shouldstart by safeguarding the environment we live in.

Policy OptionsThis part should only be considered as a recommendation on the areas that requires your attention while drawing your draft resolutions. We would like to draw your attention oncertain important issues while you come up with the final policies. This means that we willexpect you to come up with more comprehensive yet realistic approaches in resolving thismatter than what we are going to suggest next.

First of all, let us remember that UNEP’s competence lies only within the environmentalarea. We cannot enforce any policy upon states; we can only recommend policies for the

state to consider in order to safeguard the environment. UNEP has waited a long timebefore bringing the topic of environmental refugees into the light, because the subject israther controversial. However, we must remember that it is UNEP’s responsibility to drawthe attention of its member states on any substantial matter that forms a threat to theenvironmental security. For that reason, UNEP has the authority to address the politicalrights of environmental refugees, because without these rights being addressed, thecurrently arising issues will form an even greater threat to the future of our living on earth.

The following subjects requires special focus in drafting the resolution:

- The delegates are expected to come up with solutions in order to prevent and toprotect environmental degradation, such as establishing preventative investment in

sustainable development to reduce forced migration due to environment andclimate change;



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Jacobsen, K., 2002. Can Refugees Benefit the State? Refugee Resources and AfricanStatebuilding. Journal of Modern African Studies 40(4), pp. 577-596.

Kakissis, J., 2010. Environmental Refugees Unable to Return Home. New York Times ,[online] 3 January. Available at:<http://www.nytimes.com/2010/01/04/world/asia/04migrants.html?_r=3>. Accessed 30November 2010.

Kirby, A., 2008. Kick the Habit: A UN Guide to Climate Neutrality. Malta: United NationsEnvironment Management Group.

Kolmannskog, V. O., 2008. Future Foods of Refugees: A Comment on Climate Change,Conflict and Forced Migration . Oslo: Gamlebyen grafiske as.

Linde, T., 2009. Humanitarian Assistance to Migrants Irrespective of Their Status –Towards a Non-Categorical Approach. International Review of the Red Cross 91(875), p.3.

McNamara, K. E., 2007. Conceptualizing Discourses on Environmental Refugees at theUnited Nations. Population & Environment 29(1), pp.12-24.

United Nations High Commissioner for Refugees, n.d. Refugees . [online] Available at:<http://www.unhcr.org/pages/49c3646c125.html> [Accessed 30 November 2010].

UNEP, n.d. Resources For Government. [online] Avialable at:<http://unep.org/resources/gov/> [Accessed 30 December 2010].

UNEP, n.d. About UNEP: The Organization . [online] Available at:<http://unep.org/Documents.Multilingual/Default.asp?DocumentID=43> [Accessed 30December 2010].

UNEP, n.d. Milestones. [online] Available at:<http://www.unep.org/Documents.multilingual/Default.asp?DocumentID=287> [Accessed30 December 2010].

UNEP, n.d. 1997 – Nairobi Declaration redefines and strengthens UNEP’s role and mandate. [online] Available at:<http://www.unep.org/Documents.multilingual/Default.asp?DocumentID=287&ArticleID=1728&l=en> [Accessed 30 December 2010].

Further ReadingUNEP, n.d. Environmental Security, Stalble Social Order and Culture . [online] Available at:<http://www.unep.org/Documents.Multilingual/Default.asp?documentid=115&articleid=1758> [Accessed 30 December 2010].

UNEP, n.d. Existing Instruments – Relevant Provisions . [online] Available at:<http://www.unep.org/documents.multilingual/Default.asp?DocumentID=179&ArticleID=2652&l=en> [Accessed 30 December 2010].

UNEP, n.d. Disasters and Conflicts. [online[ Available at:<http://unep.org/conflictsanddisasters/> [Accessed 30 December 2010].

UNEP, n.d. Resources For Government. [online] Available at:<http://unep.org/resources/gov/mandate.asp> [Accessed 30 December 2010].



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Topic B: Strengthening the Coordination of Environmental Governancein Addressing Natural Disasters

“The United Nations has a central and unique role to play in providing leadership and coordinating the efforts of the international community to support the [countries affected by a natural disaster].”

– UNGA Resolution 46/182

Introduction

The 21 st century has so far already harboured numerous major natural disasters, with thecombined death toll exceeding 700.000. And the late Twentieth century showed a great

increase in the frequency of events (see graph). This not only brought to light concernsabout human influences on the environment which set off these disasters (New Orleans,for example, used to be an inland city with marshes around it providing shelter againsthurricanes; through oil and gas industries it found itself turning into a port, without thisprotection), it also highlighted the deficit of international cooperation when disaster strikes.In some cases help could have been given sooner or more efficiently, if there wereagreements in place which dictate how individual states were expected to react, and whichcould serve as a basis for a cooperative effort instead of the fractured help that was oftengiven.

From disasters that were given aid on an international level in the past, these problems

can be seen (Bruch 2009):• Because of the lack of a global initiative, the efforts were often delayed or sparse,

as nations felt it was not in their interest to help immediately.



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• The institutions that are currently in place dealing with these issues are fragmented,and not covering all areas of the globe, especially the areas where disaster strikesmost have few participants in these organizations.

• The lack of clear communication between the affected parties and the aid-providersas well as between the providers themselves has proven to have a detrimentaleffect on the overall efficiency of the aid.

It is clear that there has to be some way of organizing coordinating these efforts on aglobal scale, so as to fight these problems and better help the victims.

Historical and Recent DevelopmentsInternational governance regarding environmental disasters has so far been very fracturedand diverse, with the UNGA Resolution 46/182 (broadly addressing disaster response)being the only overarching framework. This Resolution also established the United Nations

Office for Coordination of Humanitarian Affairs, OCHA (Formerly Department of Humanitarian Affairs) whose mandate includes coordination of humanitarian response,policy development and humanitarian advocacy. OCHA carries out its coordinationfunction primarily through the Inter-Agency Standing Committee (IASC) chaired by theEmergency Relief Coordinator (ERC). OCHA also forms together with UNEP the JointUNEP/OCHA Environment Unit (JEU), which plays a key role in the organizing andcoordination of aid in the case of environmental Emergencies. They also have doneresearch on how to improve the aid using past emergencies (like the 2004 Tsunami) ascase studies. It subsequently provides advise on how to better future efforts. While other agreements and institutions have come into existence, they are in general either region-based and not ratified by a majority of sovereign states to serve as a truly global platform,or are very specific and have a narrow scope.

SOLAS

One of the earlier efforts regarding disaster relief and prevention is the InternationalConvention for the Safety of Life at Sea (SOLAS), incepted after the Titanic disaster, in1914 but has since gone through several versions, the last dating from 1974. ThisConvention mainly sets out maritime standards for the safety of merchant ships but alsopays particular attention to identifying potential hazards and to alerting others. Under SOLAS, the master of every ship that meets dangerous conditions, such as ice, derelicts,

direct dangers to navigation, or dangerous weather must communicate this information toall ships in the vicinity and to the competent authorities at the first point on the coast withwhich he can communicate. Once a Contracting Government receives a danger message,it must “promptly” convey this information to other “interested Governments.” TheConvention also stipulates that all ship masters must assist the persons in distress with allspeed if one receives a distress signal.

While this Convention mostly deals with ships and not with the effects that naturaldisasters can have on its whole, it sets a precedence in providing a framework for assistance to other states, as well as legally binding individuals to provide the assistance if requested.



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IRFC Guidelines for the Domestic Facilitation and Regulation of InternationalDisaster Relief and Initial Recovery Assistance

Adopted in 2007 at the 30 th International Conference of the Red Cross and Red Crescent,these Guidelines aim to further national disaster preparedness by providing guidance to States on howto improve their domestic legal, policy, and institutionalframeworks concerning international relief, and thesubsequent recovery. The Guidelines are applicable toboth natural and man-made disasters, including thosewhich affect the environment, both the sudden andlong-term ones. The Guidelines are non-binding (SeeIRFC, 2007, Article 1), not intended to modifyinternational law or existing agreements, and notapplicable to situations of armed conflict.

Regional organizations

Several regional conventions or organizations pertaining this matter exist, including onesby ASEAN and BSEC, as well as The Coordination Center for the Prevention of NaturalDisasters in Central America and the Cooperation Mechanism, and the EU Mechanismdiscussed earlier. These Regional organizations all provide a way of dealing with theproblems in their region, not necessarily on a global level. While a valuable asset, they areoften not aligned with the UNEP, or the JEU, to provide a global platform, this also meansthat while they often have clear communication lines between themselves, when operatingwith several other institutions they also display a lack of cooperation.

By establishing a global mechanism that incorporates these existing agreements in itsworkings, they could potentially be used, and operate, more efficiently.

Policy OptionsThe UNEP should seek to reach consensus on a global, UN-backed, initiative which leadsto a centralized organ for addressing disasters, and provides guidelines for the effectivemanaging of relief. Consensus is vital, for this only works with cooperation of all member states. Also noting that these disasters often strike without ample warning, but the peopleneed help as quick as possible, the resolution should include:

• A broad, if not unanimous, support within the committee• A way to quickly respond to natural disasters in the world.• A decision on whether to urge the member states to incorporate it in their respective

national laws.• A clear mechanism on how to report and request aid.• A clear establishment of financial matters, whether to (partly) pay back aid provided

or have them as mainly grants and if so, under what terms.• A recommendation on how to increase cooperation between the aid providing

institutions.• A way to deal with states not capable of governing, either because of the disaster or

other issues.



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Additionally delegates should consider whether to focus on regional-based or globaloperations.

Bloc PositionsBlocs on these issues are divided on several levels, largely in regional areas, as well as ineconomic areas:

• Developing nations tend to want a global plan which provides them with immediateaid if needed, however they would urge for generous financial regulations so to nothave to deal with more problems in that area (Atop of the ones already inflicteddue to having the disaster)

• Developed nations will want to provide immediate aid also, though more from theperspective of maintaining security in the stricken regions, and to not let theproblems spread out. They tend to urge for leeway when giving aid to others, andless restrictions on getting the aid there.

• Another important bloc are those countries which have national sovereignty as akey issue, they will want to avoid any regulation binding them to provide aid, or admit the aid offered to them. They will however urge for a agreement for nationsto provide aid on a voluntary basis, or to solve it through bi/unilateral betweenstates rather than a global one.

• In contrast to these states are the ones urging member states to adopt theprinciples into national law, thus, they would argue, reduce the boundaries that

currently are there for nations wishing to help.• Countries with a clear national prevention system of disasters in place will want to

adopt this as a prerequisite in the resolution, lest they end up paying for their ownand the other countries' protection. The same counts for the countries with varyingdegrees of environmental protection, as environmental degradation is often thereason for the disasters.

Further ReadingBruch, C., 2009, Strengthening International Governance Systems to Respond to

Environmental Emergencies (JEU)CEPREDENAC official site ( http://www.sica.int/cepredenac/ ) (Spanish)

Coordination of international humanitarian assistance in tsunami-affected countries(http://www.ifrc.org/Docs/pubs/Updates/tec-coordination-report.pdf )

Housner, George W., 1989 An International Decade of Natural Disaster Redcution 1990-2000 Natural Hazards, 2(1), pp. 45-75.

Secretary General. 2005. International cooperation on humanitarian assistance in the field of natural disasters, from relief to development. (A/60/150) (NY: UNGA)

IRFC Guidelines for the Domestic Facilitation and Regulation of International Disaster Relief and Initial Recovery Assistance. 2007.(http://www.ifrc.org/Docs/pubs/idrl/guidelines/introduction-guidelines-en.pdf )



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Tampere Convention. 1998. ( http://www.iaru.org/emergency/T-Convention_E.pdf )

UNGA Resolution 46/182. 1992.(http://www.reliefweb.int/ocha_ol/about/resol/resol_e.html )

UNEP Environmental Governance ( http://unep.org/environmentalgovernance )

UNEP programme

Documents

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