Energy Law and the Environment Part 4 docx

Environmental issues, including energy efficiency, arelimited to article 19, which reads in part as follows: In pursuit of sustainable development and taking into account its obligations

treaty, and also agreed to open discussions on developing protocols in respect

of energy efficiency, nuclear energy and hydrocarbon energy Agreement wasreached on the terms of a treaty in 1994, although the United States and Canadaindicated that they did not wish to become contracting parties New Zealandalso dropped out of the negotiations when they became protracted and when

it became clear that the original rationale for the Treaty was no longer ble.85Thus, in the final analysis the only non-European contracting Parties areJapan and Australia The Treaty was open for signature from 17 December 1994and has 51 contracting Parties.86As for the protocols, the proposed protocol onhydrocarbon energy was abandoned at an early stage, while the negotiations

applica-on nuclear energy are still applica-ongoing In capplica-ontrast, agreement was quickly reached

on the terms of the Protocol on Energy Efficiency and Related Matters, and theProtocol was open for signature simultaneously with the Treaty There are cur-rently 50 signatories

3.3.4.1 Energy Charter Treaty

The majority of the terms of the Treaty relate to issues of international energyinvestment and trade Environmental issues, including energy efficiency, arelimited to article 19, which reads in part as follows:

In pursuit of sustainable development and taking into account its obligations under those international agreements concerning the environment to which it is party, each Contracting Party shall strive to minimize in an economically efficient manner harmful Environmental Impacts occurring either within or outside its Area from all operations within the Energy Cycle in its Area, taking proper account of safety In doing so each Contracting Party shall act in a Cost-Effective manner In its policies and actions each Contracting Party shall strive to take precautionary measures to prevent or minimize environmental degradation The Contracting Parties agree that the polluter in the Areas of Contracting Parties, should, in principle, bear the cost of pollution, including transboundary pollution, with due regard to the public interest and without distort- ing investment in the Energy Cycle or international trade Contracting Parties shall accordingly:

.

(d) have particular regard to Improving Energy Efficiency, to developing and using renewable energy sources, to promoting the use of cleaner fuels and to employing technologies and technological means that reduce pollution.

‘Improving Energy Efficiency’ is defined in article 19(3)(c) as meaning ‘acting

to maintain the same unit of output (of a good or service) without reducingthe quality or performance of the output, while reducing the amount of energy

85 The original rationale was that intensified trade relations and cooperation in the energy sector could enhance the move towards democracy in the former Eastern bloc countries and act as a catalyst for economic revival.

86 The following five countries have not yet ratified the Treaty: Australia, Belarus, Iceland, Norway and the Russian Federation For a discussion of the Treaty, see R Axelrod, ‘The European Energy Charter Treaty:

Reality or Illusion?’ (1996) 24 Energy Policy 497; T W¨ alde and K Christie, Energy Charter Treaty: Selected Topics

University of Dundee, Dundee, 1995; R Stevenson, ‘Energy Charter Treaty: Implications for Australia’ (2001)

19 JERL 113; T W¨ alde and P Wouters, ‘State Responsibility and the Energy Charter Treaty’ (1997) 2 Hofstra L &

Policy Symposium 117.

required to produce that output’ This appears to correspond exactly to the ventional understanding of the term among energy professionals, although itmakes no mention of the possibility of the Parties contracting to reduce energyconsumption.87

con-‘Energy Cycle’ is defined broadly in article 19(3)(a) as:

the entire energy chain, including activities related to prospecting for, exploration, duction, conversion, storage, transport, distribution and consumption of the various forms of energy, and the treatment and disposal of wastes, as well as the decommis- sioning, cessation or closure of these activities, minimizing harmful Environmental Impacts 88

pro-The provision is thus clearly aimed at improving energy efficiency in all able circumstances and applications, and applies to various externalities associ-ated with energy use and production frequently excluded from energy costingproposals and analyses by economists.89

conceiv-For those countries which are contracting Parties to the Treaty but not to theProtocol, the above provisions represent the sum total of their international lawobligations to promote energy efficiency How effective are these provisions? Thefirst point worthy of mention is that article 19 espouses the leading principles ofinternational environmental law This discipline, which is recent in origin and is

in constant evolution, has in recent years developed general principles supportingsustainable development, intergenerational equity, the precautionary principleand the ‘polluter pays’ principle Except for intergenerational equity, these prin-ciples feature in the introductory wording of article 19 In this sense, article 19has integrated energy efficiency into international environmental law and hascountered the traditional criticism that the law has given cursory treatment tothe role of energy in society.90Unfortunately, however, the wording of article

19 only incorporates the above-mentioned principles in a non-binding and looseform Thus, each contracting Party must ‘strive to minimize harmful Envi-ronmental Impacts’, must ‘strive to take precautionary measures to prevent orminimize environmental degradation’, and ‘should, in principle, bear the cost ofpollution’ There is clearly no possibility of international enforcement of any ofthese obligations in light of the tentative wording of the provision Adherence bycontracting Parties can be regarded as purely discretionary, and the obligationsare no more than hortatory Further, article 19 makes it clear that such envi-ronmental obligations are secondary to economic considerations Thus, each

87 C Shine, ‘Environmental Protection Under the Energy Charter Treaty’, in T W¨alde and K Christie, Energy

Charter Treaty, at 539.

88 ‘Environmental Impact’ is defined very broadly in article 19(3)(b) as meaning ‘any effect caused by a given activity on the environment, including human health and safety, flora, soil, air, water, climate, landscape and historical monuments or other physical structures or the interactions among these factors; it also includes effects on cultural heritage or socio-economic conditions resulting from alterations to those factors’.

89 For a discussion of the costing of energy externalities and the politics associated with their inclusion in

energy costing, see World Energy Council, Energy for Tomorrow’s World, 60–1; Pace University Center for Environmental Legal Studies, Environmental Costs of Electricity, Oceana Publications Inc., New York, 1990.

90 On this subject, see A J Bradbrook, ‘Energy Law: A Neglected Aspect of Environmental Law’ (1993) 19

Melbourne U L Rev 1 at 1–2.

contracting Party must strive to minimize harmful environmental impacts ‘in

an economically efficient manner’ and ‘shall act in a Cost-Effective manner’.91Inaddition, the ‘polluter pays’ principle is qualified by the obligation for contractingParties to act ‘without distorting investment in the Energy Cycle or internationaltrade’ It is evident that the environmental provisions in the Treaty are very much

an adjunct to its investment and trade orientation.92

Overall, article 19 represents no more than a hesitant first step in the mental goal of promoting energy efficiency in the international law arena While

environ-it is an important achievement to secure international agreement to legislate onthe topic, the terms of article 19 appear susceptible to being ignored or, at best,being paid lip service to, by States which do not wish to take action in this field.States can certainly accede to the Treaty without concerning themselves undulyabout their energy efficiency obligations

3.3.4.2 Protocol on Energy Efficiency and Related Matters

The Protocol imposes more meaningful obligations in relation to energy ciency, although there are still many shortcomings Like article 19 of the Treaty,the Protocol adopts the principle of sustainable development One of the statedobjectives of the Protocol is stated by article 1(2)(a) to be ‘the promotion ofenergy efficiency policies consistent with sustainable development’ Anothermajor objective, in article 1(2)(b) is that energy markets should be based on

effi-‘a fuller reflection of environmental costs and benefits’ A similar wording isrepeated in the Preamble to the Protocol and in article 3(2)(a) This makes obvi-ous reference to the polluter pays principle As in the case of article 19 of theTreaty, the commitment to this principle is only partial as the word ‘fuller’ indi-cates that a total adherence to the principle is neither demanded nor expected.Surprisingly, there is no reference anywhere in the Protocol to the precaution-ary principle In this regard the commitment of the Protocol to environmen-tal protection may be regarded as weaker than that of the Treaty, although itmust be remembered that pursuant to article 14 of the Protocol it is not possi-ble to become a signatory to the Protocol without also being a signatory to theTreaty

In terms of general principles other than those specifically related to eral environmental law, perhaps the most striking achievement of the Protocol

gen-is the acceptance of the notion that energy efficiency can in itself amount to anenergy resource This is made clear in article 1(1) which, referring to the scope

of the Protocol, states: ‘This Protocol defines policy principles for the promotion

of energy efficiency as a considerable source of energy’ This clause constitutesexplicit recognition of the argument first advanced by Amory Lovins, who coinedthe phrase ‘negawatt’ (a ‘negative watt’) to indicate that a unit of energy saved

91 ‘Cost-Effective’ means ‘to achieve a defined objective at the lowest cost or to achieve the greatest benefit at

a given cost’: article 19(3)(d).

92

is equivalent in worth to an additional unit of energy generated.93This is theorigin of the modern push towards demand-side management and integratedresource planning as a more sustainable alternative to supply-driven energypolicies.

Other noteworthy general features of the Protocol relate to economic ciples Contrary to the view of some economic thought, the Preamble declaresthat the promotion of energy efficiency cannot be left exclusively to the privatesector The relevant clause in the Preamble states:

prin-Recognizing that commercial forms of cooperation may need to be complemented by intergovernmental cooperation, particularly in the area of energy policy formulation and analysis as well as in other areas which are essential to the enhancement of the energy efficiency but not suitable for private funding.

The Protocol also explicitly rejects the strand of economic argument that the lawhas no role to play in the realm of energy conservation and renewable energy.These arguments run along the lines that the available measures to promotethese energy sources can be divided into regulation, stimulation and education.Education is argued to be irrelevant to law, stimulation is argued to be a mat-ter for economists rather than lawyers, and the sole possible role of law, that ofregulation, is rejected as being heavy-handed and inappropriate in the moderncompetitive world markets.94The rejection of these arguments occurs in threeplaces: in article 3(1), which requires contracting parties to ‘cooperate and, asappropriate, assist each other in developing and implementing energy efficiencypolicies, laws and regulations’; in article 3(2), which requires contracting Par-ties to ‘establish energy efficiency policies and appropriate legal and regulatoryframeworks’; and in article 8(3), which states that ‘In implementing their energyefficiency programmes, Contracting Parties shall ensure that adequate institu-tional and legal infrastructure exist’

The Protocol imposes obligations on contracting Parties to take action insupport of energy efficiency at both the national and international levels Thenational obligations are contained in articles 3, 5 and 8 Article 3 requires the Par-ties to ‘develop and implement energy efficiency policies, laws and regulations’,while article 8 states that each Party ‘shall develop, implement and regularlyupdate energy efficiency programmes best suited to its circumstances’ The inter-relationship between the sections is by no means clear, as the Protocol does notattempt to explain the difference between ‘policies’ in article 3 and ‘programmes’

in article 8 One possibility is that article 3 of the Protocol lists those actionsrequiring domestic legislation, while article 8 refers to actions which might beimplemented by executive action of the government without the need for leg-islation This possibility appears to be countered, however, by the reference in

93See A B Lovins, Soft Energy Paths, Penguin Books, London, 1977; A B Lovins, ‘Negawatts; Twelve Transitions, Eight Improvements and One Distraction’ (1996) 24 Energy Policy 331.

94On this point, see A J Bradbrook, ‘Energy Law as an Academic Discipline’ (1996) 14 J Energy and Natural

Resources Law 180.

article 8(3) to the requirement that contracting Parties ‘ensure that adequateinstitutional and legal infrastructure exist’ It must also be remembered thatthe question whether domestic legislation is required to implement governmentpolicies and programs will depend on the nature of the legal system in operation

in each jurisdiction and the terms of each nation’s Constitution In reality, it issubmitted that there is no conceptual difference between the obligations con-tained in articles 3 and 8 and that the terms of each article must be treated ascumulative

The major parts of article 3 read as follows:

(2) Contracting Parties shall establish energy efficiency policies and appropriate legal and regulatory frameworks which promote, inter alia:

(a) efficient functioning of market mechanisms including market-oriented price formation and a fuller reflection of environmental costs and benefits;

(b) reduction of barriers to energy efficiency, thus stimulating investments;

(c) mechanisms for financing energy efficiency initiatives;

(d) education and awareness;

(e) dissemination and transfer of technologies;

(f) transparency of legal and regulatory frameworks.

(7) Contracting Parties shall strive to achieve the full benefit of energy efficiency throughout the Energy Cycle To this end they shall, to the best of their com- petence, formulate and implement energy efficiency policies and cooperative or coordinated actions based on Cost-Effectiveness and economic efficiency, taking due account of environmental aspects 95

Article 5 reads:

Contracting Parties shall formulate strategies and policy aims for Improving Energy Efficiency and thereby reducing Environmental Impacts of the Energy Cycle as appro- priate in relation to their own specific energy conditions These strategies and policy aims shall be transparent to all interested parties.

Article 3(2) has the advantage of comprehensiveness The paragraphs in thearticle are couched widely and are stated to be non-inclusive In addition, thesub-article is phrased in such a way as to impose at least a general obligation

on all contracting parties to take some action in support of energy efficiency.Unfortunately, article 3(3) suffers from the same qualifications as article 19 ofthe Treaty inasmuch as the obligation of States is limited to striving to achievethe full benefit of energy efficiency, and to acting to the best of their competence

to formulate and implement energy efficiency policies These obligations arefar too vague to be enforceable

Similar problems beset article 5 While there are significant differences in theenergy mix and demands of different countries, and in this regard it is unrealistic

to require each country to take similar measures in support of energy efficiency,the clause ‘as appropriate in relation to their own specific energy conditions’

95 ‘Energy Cycle’ and ‘Cost-Effectiveness’ are defined in article 2 of the Protocol in identical form as in article

effectively gives each country carte blanche to do as much or as little in relation

to energy efficiency as it might wish at any given time The article effectivelymakes each country the sole arbiter of what is appropriate action and makesinternational enforcement impossible

The wording of article 5 is echoed in article 8(1), which requires each tracting Party to ‘develop, implement and regularly update energy efficiencyprogrammes best suited to its circumstances’ Again, what is ‘best suited to its cir-cumstances’ is a subjective test effectively within the exclusive preserve of eachnation

con-Article 8(2) refers to the activities to be included within domestic programs

It reads:

These programmes may include activities such as the:

(a) development of long-term energy demand and supply scenario to guide making;

decision-(b) assessment of the energy, environmental and economic impact of actions taken;

(c) definition of standards designed to improve the efficiency of energy using equipment, and efforts to harmonize these internationally to avoid trade distortions;

(d) development and encouragement of private initiative and industrial cooperation, including joint ventures;

(e) promotion of the use of the most energy efficient technologies that are cally viable and environmentally sound;

economi-(f) encouragement of innovative approaches for investments in energy efficiency improvements, such as Third Party Financing and co-financing;

(g) development of appropriate energy balances and databases, for example with data on energy demand at a sufficiently detailed level and on technologies for Improving Energy Efficiency; 96

(h) promotion of the creation of advisory and consultancy services which may be operated by public or private industry or utilities and which provide information about energy efficiency programmes and technologies, and assist customers and enterprises;

(i) support and promotion of cogeneration and of measures to increase the efficiency

of district heat production and distribution systems to buildings and industry;

(j) establishment of specialized energy efficiency bodies at appropriate levels, that are sufficiently funded and staffed to develop and implement policies.

At first glance, article 8(2) appears broad-based and comprehensive The article recognises, for example, that lack of action in support of energy efficiencymeasures results from the limitations of current financing arrangements andsupports the need for innovative approaches to remedy the current situation.The recognition and promotion of scenario planning to determine long-termenergy supply and demand is also enlightened inasmuch as traditional plan-ning has proved to be notoriously unreliable Two problems exist, however First,the paragraphs in article 8(2) are only optional, as the clause uses the verb

sub-96 ‘Improving Energy Efficiency’ is defined in article 2(6) in identical form as in article 19(3)(c) of the Treaty:

‘may’ rather than ‘shall’ Secondly, and more importantly, the programs listed

in the sub-article only contain a small fraction of the provisions that have beenadopted in domestic legislation, or at least considered for adoption, by the govern-ments of more progressive nations in support of energy efficiency Far from beingbroad-based and comprehensive, article 8(2) is in reality narrow and limited

in scope

The international obligations of the contracting Parties relate to tion and assistance By article 3(1), contracting Parties shall cooperate and, asappropriate, assist each other in developing and implementing energy efficiencypolicies, laws and regulations Articles 3(5) and 3(7) are also relevant in thisregard:

coopera-(5) When cooperating to achieve the objectives of this Protocol, Contracting Parties shall take into account the differences in adverse effects and abatement costs between Contracting Parties.

.

(7) Cooperative or coordinated action shall take into account relevant principles adopted in international agreements, aimed at protection and improvement of the environment, to which Contracting Parties are parties.

Article 3(5) is interesting in that it recognises that the Parties’ obligations underthe Protocol are not necessarily uniform The Protocol is not novel in this regard,

as differing responsibilities between nations have already been accepted as afeature of international environmental law treaties in the Montreal Protocol onSubstances that Deplete the Ozone Layer (and its later amendments)97and inthe United Nations Framework Convention on Climate Change.98The interna-tional community has accepted in these cases that it is unrealistic to expect bothdeveloped and developing countries to undertake equal responsibility for envi-ronmental action in light of their gross disparity in wealth, and also on account

of the fact that the majority of the pollution has been produced by developednations It appears that article 3(5) of the Protocol is following this trend It

is unfortunate that the sub-article is not more specific, as its brevity leads toconfusion and uncertainty

The term ‘adverse effects’ is certainly ambiguous It could be referring to thegeneral environmental state of each nation, and may imply that States that havemore serious environmental difficulties should be expected to take greater action

in support of energy efficiency measures Alternatively, the term could be ring to adverse economical effects If this is the correct interpretation, it wouldmean that those countries where the relative costs of adopting energy efficiencymeasures would be greater (for example, because of the need to import expen-sive equipment or foreign professionals) would not be expected to take as muchaction in support of the objectives of the Protocol as other contracting Parties

refer-As a further alternative, ‘adverse effects’ may be referring to each contracting

97 (1987) 26 ILM 1541 98 (1992) 31 ILM 849; 1771 UNTS 108.

Party’s economic situation On this interpretation, countries such as Canada andAustralia, which have invested heavily in fossil fuels and whose economy is largelybased on the export of fossil fuel resources, might be able to justify taking lessaction in support of energy efficiency measures.

The term ‘abatement costs’ is also ambiguous This could be interpreted asmeaning that developing nations are not expected to spend as much money insupport of the objectives of the Protocol as developed nations Alternatively, itcould justify a consideration of the respective costs of establishing similar energyefficiency measures in different nations Such costs may well differ significantlybetween nations, bearing in mind matters such as whether materials and technol-ogy have to be imported or exist locally A further possible relevant consideration

in this context is the extent to which each nation has already adopted energyefficiency measures For countries which have already invested heavily in energyefficiency, such as Japan, the costs of further abatement may require increasinglysophisticated and expensive technology and may be considerable in comparisonwith those nations which have invested little in this area and which could makeconsiderable improvements by undertaking basic and relatively cheap measures.Are nations that have taken a responsible approach to energy efficiency in thepast to be penalised for their foresight?

Article 3(7) recognises the interrelationship between the Protocol and otherinternational environmental law treaties and protocols Although this is notspecifically mentioned, the provision is presumably included to acknowledgethat certain energy efficiency measures may have already been taken in pur-suance of the discharge of obligations imposed on the contracting Parties underthe Montreal Protocol on Substances that Deplete the Ozone Layer (and lateramendments) and the Framework Convention on Climate Change The wording

of article 3(7) appears to ensure that countries that have already taken energyefficiency measures under the earlier conventions will receive a credit for theiractions under the Protocol

As regards the type of cooperation required under the Protocol, article 9 statessimply that this may take any appropriate form Areas of possible cooperationare listed in the Annex to the Protocol This Annex is stated in its heading to

be an ‘illustrative and non-exhaustive list’ The list is noteworthy for its hensiveness, both in scope and in detail As well as identifying a variety of areas

compre-of cooperation in respect compre-of energy efficiency in power generation and mission, and in the transport, industrial and building sectors of the economy,the list includes financing measures (third party financing, joint ventures andco-financing), efficiencies in municipalities and local community services (dis-trict heating systems, efficient gas distribution systems, energy planning tech-nologies, twinning of towns, energy management in cities and in public build-ings, and waste management and energy recovery waste), as well as energyefficiency analysis in refining, conversion, transport and distribution of hydro-carbons and international training and education programs It is by far the most

trans-comprehensive list of energy efficiency measures ever attempted in any legaldocument, international or domestic.

of Forests.99 These documents have formed the basis for global initiatives toachieve sustainable development, and are all relevant to global climate change

in one way or another For example, the management of the world’s forests has

a significant bearing on global climate change, and climate change in turn will,and already does, have significant impacts on the earth’s biodiversity

As mentioned above, the Rio Declaration, Agenda 21 and the JohannesburgPlan of Implementation provide the backdrop for commonly understood princi-ples of sustainable development It is instructive to refer to those aspects of theinstruments that relate to a sustainable energy law framework

3.4.2 The Rio Declaration

The principal objectives of the Rio Declaration were to establish ‘a new andequitable global partnership through the creation of new levels of cooperationamong States, key sectors of societies and people’, and to develop internationalagreements which would ‘respect the interests of all and protect the integrity ofthe global environmental and developmental system’ Principle 1 of the Decla-ration proclaims human beings, entitled to a healthy and productive life in har-mony with nature, to be at the centre of concerns of sustainable development

It also reaffirmed in Principle 2 the sovereign right of States to exploit theirresources, while bearing in mind their obligation to not allow domestic activities

to cause transboundary damage to the environment Perhaps the most tial principles of the Declaration have proved to be the principle of intergener-ational equity, the precautionary principle, and the polluter pays principle ByPrinciple 3, intergenerational equity requires current rates of development toequitably meet the development and environmental needs of present and futuregenerations The precautionary approach is that, ‘where there are threats of seri-ous or irreversible damage, lack of full scientific certainty shall not be used as a

influen-99

reason for postponing cost-effective measures to prevent environmental dation’ (Principle 15) Finally, the polluter pays principle envisages the ‘inter-nalisation of environmental costs and the use of economic instruments, takinginto account the approach that the polluter should, in principle, bear the cost ofpollution’ (Principle 16) All of these principles are relevant to the development

degra-of a sustainable energy law framework

Other enduring principles are poverty alleviation (Principle 5), the commonbut differentiated responsibilities of countries to achieve sustainable develop-ment (Principle 7), capacity building and technology transfer (Principle 9),and public participation in decision-making (including women and indigenouspeople) (Principles 10, 20 and 22) States were also called upon to enact effec-tive environmental laws (Principle 11), including the provision of compensationfor the effects of pollution and other forms of environmental degradation (Prin-ciple 13), environmental impact assessment (Principle 17), and effective legalremedies (Principle 10)

3.4.3 Agenda 21

Chapter 9 of Agenda 21 also makes specific reference to the protection of theatmosphere, referring to the 1985 Vienna Convention for the Protection of theOzone Layer, the 1987 Montreal Protocol on Substances that Deplete the OzoneLayer as amended, and the 1992 United Nations Framework Convention onClimate Change The first two instruments provide for the protection of the ozonelayer while, as already mentioned, the UNFCCC is directed at global greenhousegas emissions However, the links between ozone protection and global climatechange should not be missed, as many of the gases developed to take the place ofozone-depleting gases have now been found to be ‘synthetic greenhouse gases’.100Agenda 21 specifies that activities undertaken to protect the atmosphereshould be integrated with social and economic development, taking into accountthe needs of developing countries to achieve sustained economic growth anderadicate poverty (chapter 9.3) The three Agenda 21 program areas relevant

to our purposes are: improving the scientific basis for decision-making; moting sustainable development though energy development, efficiency andconsumption; and preventing stratospheric ozone depletion (chapter 9.5) Var-ious activities are recommended for improving the scientific basis for decision-making including: promoting and cooperating on research initiatives to betterunderstand ‘the levels of greenhouse gas concentrations, that would cause dan-gerous anthropogenic interference with the climate system and the environment

pro-as a whole, and the pro-associated rates of change that would not allow ecosystems

to adapt naturally’

100See, for example, legislative activity by the Australian government in this regard enacting the Ozone

Protection and Synthetic Greenhouse Gas (Import Levy) Act 1995; Ozone Protection and Synthetic Greenhouse Gas (Manufacture Levy) Act 1995; Ozone Protection and Synthetic Greenhouse Gas Management Act 1989; Ozone

With respect to energy resources, Agenda 21 provides that governmentsshould: develop economically and environmentally sound energy sources,including renewable energy systems (chapter 9.12(a), (d)); review currentenergy supply mixes to determine how new and renewable energy systems could

be increased (chapter 9.12(f)); promote the use of improved energy efficienttechnologies (chapter 9.12(c)); and establish labelling programs for products toinform decision-makers and consumers about opportunities for energy efficiency(chapter 9.12(l))

3.4.4 Millennium Development Goals101

From an energy perspective, the Millennium Development Goals (MDGs), lished in the United Nations’ General Assembly Millennium Declaration 2000,102are disappointing in that there is no mention of the need to provide univer-sal access to energy services or to tackle any of the issues surrounding energy,poverty and sustainable development The stated goals are: eradicating extremepoverty and hunger; achieving universal primary education; promoting genderequality and empowering women; reducing child mortality; improving maternalhealth; combating HIV/AIDS, malaria and other diseases; ensuring environmen-tal sustainability; and developing a global partnership for development The dis-appointment lies in that access to energy services is not specifically mentionedanywhere in the MDGs In reality, however, as stated in a Background Paper bythe UNEP on the MDGs, access to energy services is an essential prerequisite

estab-to the achievement of all of the stated goals.103This point was further

empha-sised and expanded upon in the UNDP’s World Energy Assessment 2004 Update In

Annex 1 to this document, the authors provide a matrix of energy and the MDGs,illustrating the role of energy services in achieving each of these aims.104 The

Update concluded on this issue: ‘[n]one of the MDGs can be achieved without

much greater access to improved quality and quantity of energy services’.105

3.4.5 World Summit on Sustainable Development

Following on from the Rio Conference, global climate change and energy wereonce again addressed by the international community at the 2002 World Summit

on Sustainable Development (WSSD) Leading up to the WSSD, the UN

Secretary-101See <www.un.org/millenniumgoals> (accessed 15 August 2005).

102 UNGA Resolution 55/2 (8 September 2000); available at <www.un.org/millennium/declaration/

ares552e.htm> (accessed 15 August 2005).

103See United Nations Environment Programme, Background Paper – Advancing the Millennium Development

Goals Through the Rule of Law, DRAFT/BR/17.01.05.

104 United Nations Development Programme, United Nations Department of Economic and Social Affairs and

World Energy Council, World Energy Assessment 2004 Update, United Nations, New York, 2004, at 80 See also Department for Institutional Development (DFID), Energy for the Poor – Underpinning the Millennium

Development Goals, DFID, London, August 2002.

105UNDP et al, World Energy Assessment 2004 Update, at 18 See also WEHAB Working Group report, A

Framework for Action on Energy, prepared for the World Summit on Sustainable Development, August 2002,

General, Kofi Annan, proposed the development of the WEHAB initiative thatfocused on five key areas, namely Water, Energy, Health, Agriculture and Bio-diversity These themes were regarded as integral to a coherent internationalapproach to the implementation of sustainable development They were specif-ically incorporated into the Johannesburg Plan of Implementation of the WorldSummit on Sustainable Development.106

Prior to the WSSD, the WEHAB Working Group published A Framework for

Action on Energy.107 The publication points out that past global conferences,including the 1992 United Nations Conference on Environment and Development(UNCED), set out ambitious strategies for sustainable development, principallythrough Agenda 21 However, no specific chapter of Agenda 21 refers to energy.The role of energy in achieving sustainable development has since receivedincreased attention and the Ninth Session of the Commission for SustainableDevelopment (CSD-9), held in April 2001, focused explicitly on energy The Ses-sion highlighted the role of energy and its links to the three pillars of sustain-able development, namely social, economic and environmental considerations.The decisions taken at CSD-9 provided the foundation upon which to establish ablueprint for creating energy pathways for sustainable development at the WorldSummit on Sustainable Development

The major challenges for sustainable energy development in the years ahead

were identified in A Framework for Action on Energy as: accessibility, energy

efficiency, renewable energy, advanced fossil fuel technologies, and energy andtransport

3.4.5.1 Accessibility of energy108

The Framework recognises that wider access to reliable, affordable and socially

acceptable energy services is a prerequisite for meeting the challenge of theMillennium Development Goal109of halving the proportion of people living onless than US$1 a day by 2015 Here the greatest challenge exists in rural areasand increasingly in large poor communities that live within the margins of cities.Rural development should be the overall priority in meeting the access challengeand should focus on: increasing investments; deploying decentralised energy sys-tems using conventional and renewable energy sources; promoting local energyentrepreneurs; establishing financial mechanisms; and strengthening policiesand regulatory systems to expand the level of energy services

The Framework recognises that there are considerable institutional

impedi-ments to achieving this goal including declining official development assistance(ODA) to developing countries Also, in the face of macroeconomic reform,public-sector investment in expanding energy services is difficult to provide

106 A/CONF/L/6/Rev.2 See<http://www.un.org/esa/ sustdev/documents/WSSD POI PD/English/

WSSD PlanImpl.pdf> (accessed 16 January 2005).

107See WEHAB Working Group, A Framework for Action on Energy.

108 See A Bradbrook and J Gardam, ‘Placing the Access to Energy Within the Human Rights Framework’

(2006) Human Rights Quarterly (forthcoming).

109 Available at<http://www.un.org/millenniumgoals/> (accessed 16 February 2005).

Consequently, the Framework emphasises the fact that new methods of

public/private cooperation are necessary to attract private-sector investment

3.4.5.3 Renewable energy

Renewable energy technologies are regarded as particularly well suited for ruralenergy development and an environmentally sound alternative to grid exten-sion These technologies are commercially available, field-proven and particu-larly promising for technology transfer to developing countries The Group ofEight Renewable Energy Task Force110(see footnote below) has recognised that

by expanding renewable energy technologies in industrialised countries the cost

of renewable energy will be reduced, and, that with supportive policy measures,market incentives and promotion activities, rural energy needs can be met

3.4.5.4 Advanced fossil fuel technologies

The Framework recognises that although fossil fuels will continue to be the

pri-mary energy supply option worldwide, they must be used more efficiently andtheir negative environmental impacts must be reduced at the local, regional andglobal level This challenge also requires technology transfers from industrial

to developing countries The Clean Development Mechanism (CDM) included

in the Kyoto Protocol is cited as a major incentive for industry leadership in thisarea.111Also, private-sector organisations are seen as playing an important role infacilitating consensus building on public-private partnerships and interregionalcooperation in the area of advanced fossil fuels

3.4.5.5 Energy and transport

Transport – the most energy intensive sector – is viewed as a key challenge forsustainable development as it causes significant pollution problems The two

110See Corrado Clini and Mark Moody-Stuart, Renewable Energy: Development That Lasts, 2001 G8 Renewable

Energy Task Force Chairmen’s Report After the G8’s Okinawa Summit in 2000, the G8 Renewable Energy Task Force was established to assess the barriers to, and to recommend actions that would encourage, the uptake of renewable energy technologies in developing countries The principal finding of the Task Force is that renewable energy resources can sharply reduce global environmental impacts as well as energy security risks However, the Task Force found that the creation of widespread commercial renewable energy markets

is hampered by the following barriers: cost; insufficient human and institutional infrastructure; high up-front costs of renewables and other impediments to capital mobilisation; and weak incentives and inconsistent policies.

111 Note, however, that only countries that have ratified the Kyoto Protocol are permitted to participate