INTRODUCTION
1. The Economic and Social Council,
in its resolution 1997/45 of 22 July 1997 entitled "Proclamation
of an international year of mountains", mindful that mountains
represented an essential component of the global life-support
system and recognizing that they were essential to the survival of
the global ecosystem, welcomed and supported the ongoing efforts
to protect fragile mountain ecosystems and to promote sustainable
mountain development. In the same resolution, the Council
requested the Secretary-General, in consultation with Governments
and relevant international, regional and non-governmental
organizations, to submit to the Council at its substantive session
of 1998, a report on the desirability of proclaiming an
international year of mountains and on other ways and means of
ensuring the sustainable development of mountain countries.
2. In accordance with the
above-mentioned request the Chairman of the Commission on
Sustainable Development, which considers sustainable mountain
development in the context of its periodic reviews of the
implementation of Chapter 13 (Managing fragile ecosystems:
sustainable mountain development) of Agenda 21, sought the views
of member States and observer States on this matter. Similar
invitations for comments were conveyed to the organizations of the
United Nations system participating in the Inter-Agency Committee
on Sustainable Development (IACSD) of the Administrative Committee
on Coordination (ACC), as well as to international, regional and
non-governmental organizations with an interest in sustainable
mountain development. The replies received from all these sources
have provided valuable assistance in the preparation of the
present report. The Food and Agriculture Organization of the
United Nations (FAO), which serves as IACSD task manager for
Chapter 13 of Agenda 21, provided a significant contribution to
this report.
I. DESIRABILITY OF
PROCLAIMING AN INTERNATIONAL YEAR OF MOUNTAINS
3. The inclusion of a separate
chapter on mountains in Agenda 21, adopted by the United Nations
Conference on Environment and Development in 1992, indicates the
crucial importance of these fragile ecosystems to the
international community. As noted in Economic and Social Council
resolution 1997/45, at least one fifth of the Earth's land surface
is covered by mountains, and about 10 per cent of the worlds
population live in mountainous regions, including highlands. A far
greater proportion of the worlds population depends on mountain
resources such as water, agriculture, forestry, mining and
biological diversity. It is estimated that mountains provide the
freshwater needs for more than half of humanity - are, in effect,
the water towers of the world - a point brought out in the recent
discussion of freshwater issues at the sixth session of the
Commission on Sustainable Development held from 20 April to 1 May
1998. Mountains also provide a significant portion of the Earth's
timber, minerals and grazing land. As reported by FAO, mountains
harbour by far the largest number of distinct ethnic groups,
varied remnants of cultural traditions, environmental knowledge
and habitat adaptations; they host some of the worlds most complex
agro-cultural gene pools and traditional management practices. The
fact that mountains offer a rich variety of vast natural
landscapes and cultures has made them very attractive in terms of
tourism, one of the worlds largest industries. These resources and
services in mountain areas are of more than national or regional
importance; they have a truly global significance for the future
of humankind.
A. Indications of support
for a year, including suggestions for proposed activities
4. The replies received from
Governments and international, regional and non-governmental
organizations to the requests for views on the desirability of
declaring an international year of mountains recognize the
important and essential attributes of mountains described above
and the critical need to protect and manage sustainably their
fragile ecosystems. All 16 replies received from Governments
support the proposal to proclaim an international year of
mountains and several indicate that they are already planning or
considering special activities to be held in connection with such
a year. In Kyrgyzstan, a number of activities are planned or have
already been undertaken as a follow-up to the 1996 Bishkek
conference and in preparation for an international year, including
a regional Workshop on Central Asian Mountains94, held in Bishkek
in May 1998. The Government of Kyrgyzstan hopes that this
workshop, which was held in collaboration with the Asia Pacific
Mountain Network (APMN) and the International Centre for
Integrated Mountain Development (ICIMOD), will be a model for
additional regional meetings on other continents held to mark an
international year of mountains. The sponsors expect that inputs
from such meetings could contribute to a proposed international
conference on mountains and development that would take place in
Bishkek during such an international year. In addition, the
International University of Kyrgyzstan and ICIMOD have agreed, in
a memorandum of understanding signed in January 1998, on a number
of other preparatory activities, including the establishment of an
international organizing committee for a year of mountains. Other
specific ideas with respect to promoting an international year
include a proposal by Andorra to organize an international seminar
on the influence of a mountain environment on the philosophy of
foreign relations, and the possible convening by Switzerland of a
symposium linking science and community development.
5. Several other States (Germany,
Italy, Pakistan, Turkey) indicated that they would be planning
special events to celebrate an international year of mountains
should a decision be taken to declare one. Some respondents
(France, Switzerland) noted the importance of regional
initiatives, for example, within the framework of the Alpine
Convention.4 Others (Japan, Lesotho) have stated that activities
would be planned in connection with national legislative
proposals, including national action plans for Agenda 21. Mongolia
conveyed the expectation that an international year of mountains
would contribute to a better understanding of landlocked
mountainous countries.
6. Among United Nations
organizations, FAO has been designated task manager for mountain
issues by IACSD and could be expected to continue its role as lead
agency during an international mountain year. To facilitate the
implementation of Chapter 13 of Agenda 21, FAO has been planning
to hold a global consultation on sustainable mountain development
in 1999 or 2000, but the organization has indicated that the year
could be changed to coincide with an international year of
mountains, should one be declared after 1999 or 2000. FAO sees the
objectives of an international year of mountains as encompassing
increased awareness of, and knowledge about, mountain ecosystems,
their dynamics and functioning; promotion and defense of the
cultural heritage of mountain communities; and conservation and
sustainable development of mountain resources for present and
future human well-being.
7. The United Nations University (UNU)
has also been active in promoting mountain research and
development, particularly during the United Nations Conference on
Environment and Development process, and currently supports (with
the International Mountain Society) a quarterly journal called
"Mountain Research and Development". UNU anticipates that an
international year of mountains could contribute to a better
public awareness of the value and fragility of mountain
environments and could correct some of the misunderstandings
concerning mountains that continue to exist. The United Nations
Educational, Scientific and Cultural Organization (UNESCO) also
contributes to the study and protection of mountain areas through
its Man and the Biosphere (MAB) Programme.
8. Non-governmental organizations
involved in mountain issues are committed to pursuing the goals of
Chapter 13 of Agenda 21, as well as to addressing new concerns
such as conservation, culture and sacred values. Building on the
momentum from the Earth Summit, a world consultation of mountain
non-governmental organizations held in Lima in February 1995
formally established the International Mountain Forum, a network
of organizations, institutions and individuals with a shared
interest in sustainable mountain development. With major financial
support provided by the Government of Switzerland, the Mountain
Forum operates primarily as a decentralized structure with
regional and subregional focal points established to coordinate
networking activities. Much of its work is carried out through
electronic mail consultations and conferences, which have helped
canvass the views of a large number of non-governmental
organizations on the desirability of proclaiming an international
year. The Forums regional networks have indicated their vigorous
support for a United Nations declaration of an international year
of mountains and have pledged the full cooperation and efforts of
their members in its celebration. One of these, APMN is, as noted
above, already working with ICIMOD and the International
University of Kyrgyzstan to prepare for an international
conference on mountains and development to be held during an
international year. APMN sees among the benefits to be gained from
such a year the further development of information networks,
especially in the newly independent Central Asian States, and the
stimulation of scientific research on mountain problems. APMN also
has plans to collaborate with other partners in a travelling
photographic exhibition to be called Mountains of the world. The
Mountain Institute (TMI), which currently serves as global
representative for the over 600 members of the Mountain Forum,
anticipates that the proclamation of an international year would
not only greatly enhance global awareness of fragile mountain
ecosystems, but also call attention to the need for specific
policies and activities that support integrated community-based
approaches to addressing the special needs of mountain people, who
are among the worlds poorest. In addition, several national
non-governmental organizations based in India and Azerbaijan have
responded to the request for views with their firm support for the
declaration of an international year of mountains.
B. Timing of an international year of Mountains
9. The Economic and Social Councils
consideration in 1997 of an international year of mountains was
based on a proposal submitted by the observer for Kyrgyzstan which
had called for the proclaiming of such a year in 2000.5 This date
would coincide with the eighth session of the Commission on
Sustainable Development, which will focus on integrated planning
and management of land resources, including mountain resources.
Pakistan and all the non-governmental organizations that replied
to the request for views supported Kyrgyzstan's suggested timing.
The majority of other responses - though small in number - saw it
as essential that there be adequate time for preparing an
international year and considered that 2000 might be too soon to
allow sufficient lead time. It was also noted that in 1997 the
General Assembly had already proclaimed two international years to
be celebrated in 2000, the International Year for the Culture of
Peace and the International Year of Thanksgiving, in addition to
calling attention to other activities in connection with the
millennium - and proclaimed the year 2001 as the International
Year of Volunteers. Austria, Germany and Switzerland suggested in
their responses that an international year of mountains could be
held in 2002, when the 10-year overall review and appraisal of the
implementation of Agenda 21 would take place. Such an approach has
recently been supported by the Government of Kyrgyzstan. FAO
considers that choosing a year between 2001 and 2003 would help
ensure more substantive activities and more concrete results.
10. It should perhaps be noted that
the guidelines for future international years, contained in the
annex to Economic and Social Council resolution 1980/67 of 25 July
1980 and adopted by the General Assembly in its decision 35/424 of
5 December 1980, contain procedures for organizing the celebration
of international years that are relevant to the question of
timing. Paragraph 16 of the guidelines states that, in general,
there should be a period of two years between the proclamation of
an international year and the beginning of that year.
II. ENSURING THE
SUSTAINABLE DEVELOPMENT OF MOUNTAIN COUNTRIES
11. In considering ways and means
through which Governments and international, regional, national
and local organizations could help achieve a better understanding
of mountain issues and greater cooperation in ensuring sustainable
mountain development, the Economic and Social Council in its
resolution 1997/45 highlighted the following key elements:
(a) Awareness-raising activities (para.
1);
(b) Coordination of regional and international
cooperation(para.2);
(c) Exchange of information and experiences (para. 2);
(d) Support for subregional and interregional agreements on
mountains regarding their protection and sustainable and equitable
development (para. 3);
(e) Encouragement of regional, national and international
networking activities (para. 4).
Each of these elements can make an
important contribution to the furtherance of international
cooperation and understanding, which constitute the declared
purpose of celebrating international years. Each also encompasses,
to varying extents, existing activities that offer opportunities
for further success in efforts to ensure the sustainable
development of mountain areas and their inhabitants.
12. Actions in support of these
five areas can and do take place at all levels: at the
international level through the Commission on Sustainable
Developments monitoring of the implementation of Chapter 13,
through the FAO programmes dealing with sustainable mountain
development and watershed management, and through the activities
of other organizations such as UNESCO (MAB programme), the World
Meteorological Organization (WMO), the United Nations Environment
Programme (UNEP) and UNU; at regional and subregional levels
through those organizations and treaties devoted to specific
mountain ranges of regions (for example, the Alpine Convention,
APMN) and the network of agricultural research centres known as
the Consultative Group on International Agricultural Research (CGIAR);
nationally through domestic legislative procedures and government
initiatives, including the adoption of mountain-specific policies
and laws and the establishment of national plans and commissions
for sustainable development; and locally through grass-roots,
largely non-governmental organizations, support for traditional,
indigenous knowledge systems and the cultural heritage of mountain
communities, as well as the improvement of the economic and social
conditions of mountain peoples.
13. Possible ways and means to
further the sustainable development of mountain areas are
discussed below according to the type of activities identified by
the Economic and Social Council last year. The analysis has been
suggested by FAO, as task manager for Chapter 13. FAO supports the
view that all these activities would likely be more widespread,
more inclusive, and more effective with the added impetus that an
international year of mountains could bring. The discussion may be
set forth as follows:
(a) Awareness-raising: although
there have been intensive efforts by organizations and groups
dealing with mountains to inform people about, and involve them
in, issues regarding mountains and their communities, further
awareness-raising activities regarding mountain issues are
required. While mountain specialists and interest groups are
largely communicating through the Mountain Forum and other
regional and local groups, the mountain communities need further
support in the generation and dissemination of knowledge and
experiences. In the view of FAO, a wealth of information and
promotion activities have been launched since the United Nations
Conference on Environment and Development at global, regional
and national levels; however, awareness-raising activities at
the national, subnational and local levels could be expanded to,
inter alia:
(i) Inform the urban population
(for example, schoolchildren) of the complex
interrelationships existing between mountain and urban areas
(in terms, for instance, of freshwater quantity and quality,
sports and other recreational activities, specific products
from mountain areas) and thereby improve (or re-establish)
understanding and solidarity between upland and lowland
communities;
(ii) Provide an impetus to create awareness and involve a
greater number of stakeholders including national and local
government structures, nongovernmental organizations,
communities and the private sector in the implementation of
Chapter 13;
(iii)Raise awareness on the need for reconciling conservation
and development;
(iv) Provide an opportunity to raise awareness on biological
diversity in mountain ecosystems;
(v) Raise awareness of geopolitical issues connected with
mountains;
(b) Coordination of regional and
international cooperation: a number of ongoing initiatives and
cooperative frameworks have a particular relevance for mountain
issues. Further efforts could help in promoting a common
approach to and greater coordination of the implementation of
international conventions and agreements (for example, on
climate change, biological diversity, desertification, coastal
areas and the MAB programme). An important development for
future work was the October 1995 decision of the Council of the
Global Environment Facility (GEF) to include mountain ecosystems
in one of four operational programmes within the biodiversity
focal area. The importance of mountain ecosystems has also been
emphasized by the Conference of the Parties to the Convention on
Biological Diversity. Furthermore, since 1997, GEF resources
have also been directed to mountain areas through a UNU project
called "People, land management and environmental change (PLEC)";
(c) Exchange of information and
experiences: since the United Nations Conference on Environment
and Development, the "Mountain Agenda" (as the issues addressed
in Chapter 13 are called has generated considerable enthusiasm
and cooperative efforts, largely because of the dedication of
the non-governmental organization community. An international
year of mountains might be expected to provide a stimulus for
further exploration and coordination of initiatives towards
sustainable mountain development. In combination with the
awareness-raising activities mentioned above, further efforts
are required to enhance the collection, exchange and
dissemination of information related to mountain issues and best
practices, based on the results of the large number of projects
and programmes relevant to mountains initiated by United Nations
agencies, national Governments and bilateral development
agencies, international research centres and universities,
international and local non-governmental organizations and
committed individuals. A greater knowledge and awareness of the
circumstances facing, mountain inhabitants and the constraints
and challenges they are confronting, especially the most
vulnerable groups of women, children and the disadvantaged, are
required; but information should also be spread about the wealth
of cultural values of which the mountain communities are
depositories and guardians;
(d) Support for subregional and
interregional agreements on mountains: a number of regional
initiatives on sustainable mountain development have been
undertaken. Various initiatives by mountain countries in the
Alps, Andes, Carpathians, Caucasus, Hindu Kush-Himalayas, and
Pyrenees regions also provide possible frameworks for further
cooperation at the scale of mountain ranges and complexes. There
are, however, many mountain ranges - particularly in other parts
of Asia and Eastern Europe, and in Africa and Central America -
where considerable opportunities exist for regional initiatives
to be fostered by interested regional and national Governments,
bilateral agencies, international organizations, and others. The
various regional elements of the Mountain Forum may have a
particular role to play in mobilizing key stakeholders. There is
also a need for more transborder collaboration among countries
sharing services from the same mountain ranges or unique
biological riches;
(e) Regional, national and
international networking: as indicated earlier, non-governmental
organizations at all levels - international, regional and local
- have taken a central role in developing and implementing
networking initiatives among the international mountain
community. The creation and expansion of the Mountain Forum,
especially the worldwide Internet services maintained by the
Mountain Institute, have been successful, but these efforts
require further and continued support. A better sharing of
knowledge, technology and experience is necessary for the
effective management of mountain ecosystems.
III. CONCLUSIONS
14. The adoption by the
international community in 1992 of Chapter 13 of Agenda 21 has
generated a genuine enthusiasm for and interest in mountain
ecosystems and their conservation and sustainable development.
This interest is a shared one among mountain communities,
non-governmental organizations, international organizations and
governmental institutions, at national, regional and international
levels. There is a continuing need for rigorous interdisciplinary
scientific research on mountains that takes into account the
knowledge and traditions of the mountain inhabitants themselves.
This need was emphasized in an independent 1997 study, prepared
for the General Assembly's nineteenth special session to review
the implementation of Agenda 21, which concluded that the global
database on mountains was unacceptably sparse and that whatever
data existed were often unreliable. Given the reality of an
increasing scarcity of research funds 91 the authors called for
further international collaborative efforts, including
standardization of objectives and methods, sharing of data banks
and identification of minimum needs.
15. A more recent report, to be
published by FAO in the latter half of 1998, concludes that what
is now needed is an agreed prioritization - at regional and global
levels - of the objectives contained in Chapter 13 and other
components of the Mountain Agenda. The report suggests that while
freshwater, biological diversity and tourism might be global
priorities, each of the intergovernmental and non-governmental
organization consultations held since Rio has produced its own,
different set of priorities for mountain issues. The elaboration
of national action plans for mountain areas and the integration of
mountain concerns in national policies and strategies for
sustainable development could help focus the decision-making
process in mountain countries.
16. The argument has been put forth
by the active participants of the mountain community -
Governments, international organizations, research institutions,
non-governmental organizations, individuals and scholars that the
proclamation of an international year of mountains would provide
an impetus for the work still required to achieve the objective of
Chapter 13, namely, sustainable mountain development. Other ways
and means have also been suggested. The largely untapped role of
the private sector especially major industries like tourism,
energy, forestry and mining, which affect mountain regions around
the world also offers opportunities.While there is now a greater
recognition of the enormous value mountains confer on the global
economy, society and environment, much still needs to be done at
all levels to protect, conserve and sustainably manage these
resources. The responses received from Governments,
non-governmental organizations and organizations of the United
Nations system suggest that the proclamation of an international
year of mountains at an appropriate time could contribute to the
efforts to achieve such objectives.
NOTES
- Report of the United Nations
Conference on Environment and Development, Rio de Janeiro, 3-14
June 1992, vol. 1, Resolutions Adopted by the Conference (United
Nations publication, Sales No. E.18 and corrigendum), resolution
1, annex 11.
- See Official Records of the
Economic and Social Council, 1998, Supplement No. 9 (E/l
998/29); also Mountains of the World: Water Towers for the 21st
Century, a report prepared for the Commission on Sustainable
Development by the Mountain Agenda, with support from the Swiss
Agency for Development and Cooperation, Bern, 1998.
- Food and Agriculture
Organization of the United Nations (FAO), Review of
Implementation of Chapter 13 of Agenda 21 from 1992 to 1997
(Rome, forthcoming), report prepared by Dr. Martin Price. See
also Report of the Secretary-General on overall progress
achieved since the United Nations Conference on Environment and
Development: managing fragile ecosystems: sustainable mountain
development (E/CN. 17/1997/2/Add. 12), prepared by FAO for the
fifth session of the Commission on Sustainable Development.
- International Convention for the
Protection of the Alps (Alpine Convention), signed by five
Alpine countries and the European Union in 1991, entered into
force in 1995. Two additional countries signed it subsequently.
- See letter dated 30 January 1997
from the Permanent Representative of the Kyrgyz Republic to the
United Nations addressed to the Secretary-General (E/1997/3);
and also A/52/3.
- See General Assembly resolutions
52/15 entitled Proclamation of the year 2000 as the
International Year for the Culture of Peace; 52/16 entitled
International Year of Thanksgiving, 2000; and 52/17 entitled
International Year of Volunteers, 2001, all adopted without a
vote on 20 November 1997.
- See Mountains of the World: A
Global Priority, B. Messerli and J. D. Ives, eds. (New York and
London, Parthenon Publishing Group, 1997), pp. 12-13, and 455.
- See FAO, Review of
Implementation ... The section entitled Chapter 13 after UNGASS
is particularly relevant (pp. 52-65 of the unedited text).
- Some of these opportunities are
discussed in Investing in Mountains: Innovative Mechanisms and
Promising Examples for Financing Conservation and Sustainable
Development, L. Preston, ed. (Franklin, West Virginia, Mountain
Institute/FAO, 1997). The publication reports on an electronic
conference organized by the Mountain Forum in 1996.