MAINSTREAMING ENVIRONMENTAL VALUES

Transcription

1 Proceedings of the 1 st Asia Pacific Conference on Transportation and the Environment May 1998 MAINSTREAMING ENVIRONMENTAL VALUES The crafting of an Environment Strategic Plan in the South Australian Transport Agency (Transport SA). Jill Tideman Environmental Strategy Manager, Transport SA, Australia Dawn Thornton Senior Consultant, Manidis Roberts Consultants, Australia 1. Abstract In 1997, as part of its strategic management process, Transport SA set out to get a clear plan on how to work towards a goal of a transport system in harmony with the environment. At that time it was recognised that such a goal could never be achieved unless environmental values were infused into the organisational culture. In other words, Transport SA did not want just another Strategic Plan to sit on the shelf - it needed a plan which would live through all decision making from operational to policy level decisions. To do this, the process for the development of an Environment Strategic Plan had to address the need for cultural change. It meant that the process had to be a highly participative one to engage staff in the development of their plan and build their knowledge and understanding of the issues. It needed to build commitment to implementation and legitimise action for the environment. The process also had to look outward to the community to understand their values in relation to the environment and their expectations of Transport SA in relation to transport and the environment. This paper describes the key steps and features of the development of an Environment Strategic Plan for the South Australian transport agency, with reference to how this contributed to mainstreaming environmental values in the organisational culture. 2. Introduction Like many road and transport agencies throughout the world, Transport SA, operates in a context of rapid change. As in many other public sector agencies it is evolving from an organisation which has planned, designed, constructed and maintained arterial roads to one whose role is shifting towards improving the transport system by planning, regulation and management. This new focus means buying in construction and maintenance services when required, developing a greater customer focus and adopting a strategic approach to service delivery. (see Box 1). C:\Documents and Settings\mintert\Desktop\pdfs\mainstreaming_env_val.doc05/08/02 1

2 This paper is about how in one area - the relationship between the transport system and the environment - Transport SA is changing direction. Box 1: Transport SA s role Transport SA s business is managing the transport system in South Australia. In particular, its role is in the management of an integrated transport system across all modes, specifically with respect to: development of transport policy and strategy for all modes of transport; development of integrated transport system planning; management of the use of the system (apart from the public transport system which is the responsibility of the Passenger Transport Board) including: - the regulation and use of the road network; - the regulation and use of transport in marine and inland waters; and - safety of users of road, marine and rail transport; management of transport infrastructure including roads, ferries and the Busway, recreational jetties and boat ramps and bus assets. 3. The challenge for Transport SA Communities in Australia are increasingly concerned about the environment (ABS, 1996; Kneebone and Berry, 1997). Governments at all levels have responded by significantly extending the scope of environmental legislation and regulation since the 1970s and the 1990s have seen the development of important national strategies (NSESD, 1992; NGRS, 1992; NSCB, 1996) At a State level, the South Australian government has long recognised the need to integrate economic, social and environmental actions to provide for a strong and sustainable future for the State. In particular, the way in which the transport system is managed and used plays a crucial part in contributing to international, national and State goals for a sustainable future. Box 2 summarises the key environmental issues facing the transport system in South Australia. Box 3 describes the organisational issues which need to be addressed by Transport SA in order to meet the challenge of improving the environmental performance of the transport system. C:\Documents and Settings\mintert\Desktop\pdfs\mainstreaming_env_val.doc05/08/02 2

3 Box 2: Key environmental issues for the transport system in South Australia Air Pollution air pollution from the burning of fossil fuels in vehicle engines; 17% of South Australia s emissions of carbon dioxide come from the transport system; local air quality impacts from transport system use; air pollution is identified by the community as the most important impact of the transport system on the local environment (Transport SA, 1997). Transport Noise estimated 15% of Adelaide s population is subject to undesireable noise (>55 dba) from the transport system; the majority of undesireable noise can be attributed to road transport; noise is identified by the community as the second most important impact of the transport system (Transport SA, 1997). Loss of Biodiversity and Land Degradation impacts on vegetation and native fauna and soil erosion are identified by the community as the third most important effect of the transport system (Transport SA, 1997); land degradation cost estimated at $120 million per annum in lost rural production, primarily as a result of clearing for agriculture, but also impacted upon by transport system management and use (State Revegetation C tee, 1996); significant land area encompassed by transport corridors; roadsides contain important remnant vegetation; high levels of biodiversity and uniqueness in marine biota affected by marine transport. Water Pollution pollution from shipping including ballast water discharge and oil spills; >15 oil spills in SA waters releasing more than 308,000 litres into the marine environment (SA Marine & Estuarine Strategy, 1997; CSIRO, 1997); introduction of 4 exotic species of concern to SA marine waters, from ships fouling and ballast waters (CSIRO, 1997); contamination of stormwater runoff and inland waters from road and water based transport. Social and Cultural Environment transport a significant consumer of non renewable resources and the main consumer of non-renewable fossil fuels after the power generation sector creates issue of equity of access to resources by future generations; loss of visual amenity and quality of life; protection of the heritage of indigenous and non-indigenous Australians; significant heritage areas encompassed or crossed by transport corridors. C:\Documents and Settings\mintert\Desktop\pdfs\mainstreaming_env_val.doc05/08/02 3

4 Box 3: Key issues for Transport SA in meeting the environmental challenge Corporate Culture traditionally technical, engineering bias with focus on road construction and maintenance currently changing to a broader transport system management role; typically focused on compliance and addressing symptoms rather than underlying causes of issues; in process of moving to a proactive and strategic approach to corporate management; environment is not a part of core business; traditionally has not communicated environmental achievements well. Building Relationships the Agency does not have sole responsibility for the environmental impacts of the transport system, therefore developing partnerships is critical to achieving improved environmental performance of the transport system need for an integrated approach to transport and urban planning and development to manage the pattern of transport use and resource consumption need for a whole-of-government approach to problem solving need to influence transport users; improving customer focus. Community Consultation and Participation increased environmental awareness by the community and increasing demand by the community for early consultation and participation in decision-making processes; almost all South Australians believe it is important that the Agency consults with the community (Transport SA, 1997); strong perception that the Agency consults poorly about what it is doing with regard to environmental issues (Transport SA, 1997). Corporate Management existing strengths are in environmental management procedures and processes relating to project level impacts and impact mitigation; need to develop the strategic approach to all aspects of corporate management and decision-making ensuring environmental considerations are integrated; small Environment Unit not mainstreamed into corporate management and decision-making; need to enhance corporate image. Skills and Knowledge Base desire by staff to contribute to improved environmental outcomes; lack of environmental skills and experience in some areas/levels of the organization; need to encourage and reward staff for taking environmental initiatives and achieving high standards and communicate environmental expectations and achievements; need for improved information and education of transport system users. C:\Documents and Settings\mintert\Desktop\pdfs\mainstreaming_env_val.doc05/08/02 4

5 4. Responding to the challenge: the process for developing the Environment Strategic Plan In response to the environmental and organisational issues summarised in Boxes 1 and 2, Transport SA has made a commitment in its Corporate Plan to improving the environmental performance of the transport system. A transport system in harmony with the environment is one of the goals at the heart of that Plan together with goals for the transport system to be safe, accessible, efficient and reliable. To achieve the corporate environment goal, a plan was needed to establish the long term environmental direction for the Agency and to provide a basis for decision making at a broad corporate investment level and at a business unit (or section) planning level. To make this work, however, required more than a plan that would just sit on the shelf. Making the plan live required positive environmental values infused throughout the organisational culture. To achieve this, the process for preparing the Environment Strategic Plan became more important than the final document itself. Mintzberg s philosophy influenced the approach and thinking behind the process. He stated that, while hard data may inform the intellect, it is largely soft data that generates wisdom. They may be difficult to analyse, but they are indispensable for synthesis - the key to strategy making. (Mintzberg, 1994). The process adopted for the development of the Plan is outlined in Figure 1. It is a mission-based approach, bringing together the perceptions of internal and external stakeholders to prepare a vision for the future and using this vision as the basis for developing objectives, strategies and desired outcomes. C:\Documents and Settings\mintert\Desktop\pdfs\mainstreaming_env_val.doc05/08/02 5

6 CONSULTATION PROCESS OUTPUT STAGE 1 Interviews with agency staff Focus groups with agency staff Stakeholder assessment Community opinion sampling Environmental performance review Identification of issues Identification of community views Environment review Community and stakeholder opinion report Newsletter to staff Internal home page STAGE 2 Agency workshops Interviews with agency staff Executive briefings Government agency forum Analysis and synthesis of issues Initial development of strategic directions Draft environment strategic direction Synthesis and briefing papers STAGE 3 Major workshop Comments from agency staff Briefings of executive, directorates, strategic and section planners Confirmation of strategic directions Iterative drafting of plan Strategic investment prioritization Establishment of objectives, targets and strategic level outputs Internal promotion and awareness raising about the plan Newsletter to staff Environment strategic plan STAGE 4 Publications Public Launch Communication of the commitment Internally and externally Implementation Public brochure and summary of plan Ministerial launch Section plans, strategic plans incorporating environmental direction PROCESS FOR THE DEVELOPMENT OF THE ENVIRONMENT STRATEGIC PLAN FIGURE 1 C:\Documents and Settings\mintert\Desktop\pdfs\mainstreaming_env_val.doc05/08/02 6

7 The preparation stages were completed in December An analysis of the key success factors in achieving the mainstreaming of environmental values to date is outlined as follows. Highly participative process:! staff engaged in the development of their plan;! staff knowledge and understanding of the issues raised;! commitment to the implementation of the Plan built;! action for the benefit of the environment legitimised;! interaction between staff encouraged. An open and transparent process where all staff had the opportunity to provide input and comment on draft documents and ideas at all stages of the process. Involved a broad cross-section of staff in the process from all geographical regions and all levels of the organisation from Executive to field staff, strategic planners to administration assistants. Development of the Plan viewed as being seamless along with the implementation of the Plan. Establishment of a Steering Group to oversee the development of the Plan with three members of the Executive, a representative from the South Australian environment agency and the project manager. Identification of a preferred future to lead the strategy (mission based) rather than a constraints or problem driven approach. Identification of environmental issues facing Transport SA, from both an internal and external perspective. Review of the current environmental management performance of the Agency and comparison of the way the Agency organises environmental management with similar agencies. Providing time out for staff to think about the environmental aspects of their work. Investment of significant resources. Providing both qualitative and quantitative information about what the community really thinks about the agency and its performance, and about transport and environment issues. That the process adopted has been instrumental in fostering organisational change is evidenced by positive feedback from staff, for example: I was very encouraged by the Executive s commitment to the environment. C:\Documents and Settings\mintert\Desktop\pdfs\mainstreaming_env_val.doc05/08/02 7

8 I learnt a lot about the Department and its responsibilities for the environment. It resulted in a much better shared understanding of what an Environment Strategic Plan means for us. I saw that the environment will be a part of the way we do our business. The final document was formally adopted by the Executive as the first Environment Strategic Plan for Transport SA in late Overview of the Environment Strategic Plan The Plan itself is an internal working document with key sections devoted to: 1. an overview of the significant environmental issues in a global, national and state context; 2. an Environment Strategic Framework which commits the Agency to four Environment Strategic Directions (see Box 4). It presents a suite of objectives, performance indicators, targets, strategies and outputs covering both operational and organisational areas of the Agency s business. The framework is intended to inform and guide section planning; 3. a recommended pattern of coporate level investment to achieve improved environmental outcomes. Box 4: The Environment Strategic Plan - Directions and Objectives Environment Strategic Directions To sustain the natural environment To enhance the social and cultural environment of the community To be an environmentally responsible organization To build relationships for the benefit of the environment Objectives To minimise harmful air emissions, both locally and globally. To protect and sustain biodiversity. To protect water quality. To reduce the consumption of resources. To promote and practice good land management. To reduce traffic noise. To enhance visual amenity. To respect and conserve cultural heritage. To promote a corporate culture where commitment to leading environmental performance is demonstrated by the way business is done. To establish relationships with the community, stakeholders, customers and suppliers to achieve the environmental goal and objectives. To encourage a holistic approach to transport and the environment. C:\Documents and Settings\mintert\Desktop\pdfs\mainstreaming_env_val.doc05/08/02 8

9 6. Making the Plan live In the words of the Chief Executive of Transport SA, the journey has already begun during the development of the Plan, now we have to explore how best to implement the strategies and truly integrate environmental considerations into our decisions. Over time the pattern of actions should reflect the directions of this Plan. Implementing and refining the Plan are now the focus of activity. Critical ongoing implementation measures include: development and implementation of a communications strategy for the Plan comprising internal communication and external communication to stakeholders and the community; launch by the Minister of Transport focussed on the development of strategic relationships; establishment of an Environmental Strategy Section within the organisation structure; increased investment in the environment programme; involvement of the Environment Strategy Manager in corporate wide investment decision making; provision of advice to business units on actions they could take to meet the objectives and strategies of the Plan; enhancement of environmental management systems to cover all areas of business; use of the plan as a model for other strategy development in Transport SA; seed funding for development of relationships with stakeholders; planned formal and ongoing review of the plan to maintain relevance, improve performance indicators and targets and incorporate lessons learned in implementation. 7. Conclusions...managers are craftsmen and strategy is their clay. Like the potter they sit between the past of corporate capabilities and a future of market opportunities. And if they are truly craftsmen they bring to their work an intimate knowledge of the materials at hand. That is the essence of crafting strategy. (Mintzberg, 1987). Transport SA has recognised the opportunities that a transport system in harmony with the environment represents to the South Australian community. The crafting of an environmental strategy, by adopting a participative process and focussing on the cultural change aspects of strategy development, will ensure that the Agency is equiped to realise these opportunities. C:\Documents and Settings\mintert\Desktop\pdfs\mainstreaming_env_val.doc05/08/02 9

10 8. References Australian Bureau of Statistics (ABS), Australians and the Environment. CSIRO, Adelaide Coastal Water Study. Initial Findings Report. Kneebone, D and Berry, D. (eds), Australia at the Crossroads: roads in the community a summary. Austroads Inc. National Greenhouse Gas Response Strategy (NGRS), AGPS Press, Canberra. National Strategy for Ecologically Sustainable Development (NSESD) AGPS Press, Canberra. National Strategy for the Conservation of Biological Diversity (NSCBD), Department of Environment, Sport and Territories. Mintzberg, H Crafting Strategy. Harvard Business Review, July August p Mintzberg, H The Rise and Fall of Strategic Planning. Prentice Hall. South Australian Marine and Estuarine Strategy. draft Technical Summary {Prepared by the Technical Reference Group on behalf of the Marine and Estuarine Strategy Steering Committee. Draft dated 8 Sept } State Revegetation Committee (SA) The Revegetation Strategy for South Australia. Transport SA, Opinion Sampling Survey - Phase 1 and 2 internal reports of research conducted by McGregor Marketing on behalf of Transport SA. C:\Documents and Settings\mintert\Desktop\pdfs\mainstreaming_env_val.doc05/08/02 10