Urban EMS in Japan The ISO 14001 Initiatives of Public Authorities in Japan
Hari Srinivas
Case Study Series E-166. September 2022
Abstract ISO 14001 defines a voluntary environmental management system (EMS). Used in conjunction with appropriate goals, and with management commitment, the standards help improve environmental performance and reduce negative impacts. They provide an objective basis for verifying claims about a local government's environmental performance in its day-to-day operations.
Consumers, governments and companies up and down the supply and production chain are all seeking ways to reduce their environmental impact and increase their long-run sustainability. For local governments, the key goals are to be environmentally efficient, and serve as a model for resource-saving and replication.
This paper explores the intersection of city governments, EMS and the ISO 14001 series. It outlines the justification for cities to implement an EMS for their day-to-day operations, and seek ISO 14001 certification. It also provides case studies of Japanese cities and prefectures (Shirai city, Itabashi ward of Tokyo, the Tokyo Metropolitan Government, and Gifu Prefecture) that have attempted ISO certification.
I SO 14001 defines a voluntary environmental management system (EMS). Used in conjunction with appropriate goals, and with management commitment, the standards help improve environmental performance and reduce negative impacts. They provide an objective basis for verifying claims about a local government's environmental performance in its day-to-day operations.
Consumers, governments and companies up and down the supply and production chain are all seeking ways to reduce their environmental impact and increase their long-run sustainability. For local governments, the key goals are to be environmentally efficient, and serve as a model for resource-saving and replication.
This section explores the intersection of city governments, EMS and the ISO 14001 series. It outlines the justification for cities to implement an EMS for their day-to-day operations, and seek ISO 14001 certification. It provides case studies of four Japanese cities and prefectures (Shirai city, Itabashi ward of Tokyo, the Tokyo Metropolitan Government, and Gifu Prefecture) that have attempted, or are int he process of obtaining, ISO certification.
Shiroi Town
Urban EMS in Japan The ISO 14001 Initiative of Shiroi Town
General Description:
Shiroi Town is located in the northwestern part of Chiba prefecture, about 30 kilometers from Tokyo. It has an area of about 35 square kilometers, with a population of 50,000. Located close to Tokyo, the town developed as an agricultural region. However, since mid 60s, it experienced rapid urbanization, and has developed as a key industrial and residential area. As a result of the rapid urbanization, the town is currently facing many problems such as deterioration of natural environment, increase in waste generation, air and water pollution, etc. for which measures need to be taken urgently.
Background for the movement toward the acquisition of ISO14001 certificate:
With increased public concerns on global environmental issues such as global warming, ozone depletion, etc., the town recognized the need to take voluntary actions for protecting the living environment for residents. Accordingly, it was decided by the town office that the year 1995 be "a year of the environment", and in 1996, the town declared itself to become "a city of environment". The decisions show the intention of the town office to pursue development of the town in an environmentally sound manner, and enlighten the need to pursue environmental protection and raise public environmental awareness. On Shiroi Town's internet website, it is clearly stated that the town office needs to be aware of the negative impacts to the environment that the activities of the town are bringing about, and that the town office itself needs to improve its environmental behavior. Thus, the acquisition of ISO14001 certificate was targeted as an effective means for the office to achieve this objective.
Stage of acquisition of ISO14001 certificate:
Initiation of preparation for the acquisition: May 1997
January 1998
Features of activities:
The experience of Shiroi Town is unique in that it is the first local government in Japan to acquire the ISO14001 certificate. There was no precedence that the town office could refer to in its process of ISO acquisition. Instead, the town officials were reported to have consulted officials of the Ministry of International Trade and Industry in May 1997 where they were informed that there was a possibility even for local governments such as Shiroi Town to acquire ISO14001 certificate, and this motivated the town office to work on the acquisition.
The final decision to acquire ISO14001 certificate was made by the town mayor who had taken a strong initiative in the decision making process. In deciding the acquisition, it was recognized that based on the idea of "Think Globally, Act Locally", it was indispensable for the office to take actions in partnership with other stakeholders to overcome environmental issues.
The scope of the application of Shiroi town's environmental management system (EMS) covers all the activities carried out by the town office. The main internal objectives and long-term internal benefits of the acquisition were reported to be: 1) to raise environmental awareness of the staff members; 2) to reduce negative environmental impact of the activities of the town office; and 3) to utilize EMS in daily operations of the city office. On the other hand, external objectives and long-term external benefits were reported to be the enlightenment effect that the action of the town office itself could bring about among other stakeholders in Shiroi, which would lead them to take actions by themselves, and promote better living environment for residents.
As a result of the requisition of the certificate and its implementation, it was reported that, internally, the office experienced: 1) the reduction of negative impact to the environment by its activities (e.g. 19% reduction of paper use in the office, 2% reduction of utility use); 2) raised environmental awareness of staff members; and 3) established the concept of EMS in its daily operations. On the other hand, it was reported that externally, the acquisition of the certificate and its implementation had contributed to: 1) an improved image of the town and 2) increased acquisition of ISO14001 certificate by other stakeholders in the town. It was also reported that the acquisition by the town office raised the concerns and promoted the activities of other local government bodies on ISO14001, and the town office received many inquiries and requests for information about the acquisition process from other local government bodies.
With regard to the information dissemination and communication, it was reported that the town office disseminated information regarding its experience on ISO14001 and EMS to other local governments, other stakeholders in Shiroi as well as outside the town through the Internet and various publications. With regard to the barriers in the process of acquisition, it was reported that since the process was undertaken mainly by staff members of the Environmental Department, there was a significant increase in administrative work that hampered daily operations of the department.
Tokyo's Itabashi ward
Urban EMS in Japan The ISO 14001 Initiative of Itabashi ward of Tokyo
General Description:
Itabashi ward is one of Tokyo Metropolitan area's 23 wards, located in the northwestern part of Tokyo. It has an area of about 32 square kilometers, with a population of about 50,000. Since mid 80s, the ward experienced rapid urbanization which brought about serious deterioration of its natural environment, and since then, the ward office has promoted afforestation and other environmental activities as one of its core policies.
Background for the movement toward the acquisition of ISO14001 certificate:
In facing the urgent need to take measures for the environment, the ward office carried out various environmental activities such as introduction of low pollution vehicles and establishment of a center for environmental education called "The Eco-Police Center". In 1993, the ward declared that it would become "a city of environment", in order to show internally as well as externally that it considered the creation of a town that could coexist with the environment as one of the prioritized policies. In addition, in order to take Agenda 21 into account (adopted at the Earth Summit in Rio in 1992), the ward established a Local Agenda called "Agenda 21 Itabashi", which became the core of environment-related activities of the ward. In 1997, the ward office developed its own environmental management and auditing system, and since then, under the framework of the system, it has carried out assessment of energy use as well as waste generation and recycling in its office, and has provided environmental training courses for its staff members. However, in recognizing the need to further develop the system and establish more effective management system in conformity with the concept of ISO14001, a new EMS for Itabashi was developed in 1998. It should be noted that the new EMS was developed based on the one that already existed, and the objective was to find a way to transform the existing EMS into one that would better suit the requirements of ISO14001.
Stage of acquisition of ISO14001 certificate:
Initiation of preparation for the acquisition: December 1997
February 1999
Features of activities:
Itabashi Ward is the first ward of Tokyo's 23 wards and the fifth local government in Japan to acquire ISO14001 certification. The final decision to acquire ISO14001 certificate was made by the Ward Mayor. The scope of the application of EMS includes all activities carried out by the ward office, and all the facilities of the ward, except schools. It was reported that the consensus on the scope of the application was made relatively smoothly, since there was sufficient understanding and support for the acquisition of ISO14001 from each section of the office.
One of the main advantages that the ward office could obtain from the acquisition was that it enabled the integration of various activities carried out separately by individual sections of the office, and establish an integrated and effective management system. The main internal objectives and long-term internal benefits of the acquisition were: 1) to promote the planning and implementation of policies for environmental protection; 2) to raise environmental awareness of staff members; 3) to reduce negative impact on the environment by the activities of the ward office; and 4) to save operational costs by saving energy and resource use. On the other hand, external objectives and long-term external benefits were: 1) to establish greener commercial distribution channels and markets by prioritizing the purchase of recycled papers and eco-friendly goods; 2) to raise environmental awareness and cooperative attitude of residents on environmental activities carried out by the ward office; 3) to support local enterprises in their acquisition processes, based on its own experience; and 4) to increase transparency of its activities by disseminating information regarding its environmental policy and its experience.
With regard to the information dissemination and communication, the ward office has been disseminating information regarding its experience on ISO14001 and EMS to residents, other stakeholders in a town, as well as other local governments by distributing manuals and newsletters, and organizing seminars particularly targeting businesses that need support for acquisition of ISO certification.
Based on the experience of the ward office, it was reported that the cooperation and full understanding by all the sections of the office was indispensable for the acquisition of the certificate. Furthermore, it was noted that the acquisition itself was just a starting point, and what is more important is to keep making the efforts to raise environmental awareness of each individual staff member, as well as to constantly improve the EMS itself.
Tokyo Metropolitan Government
Urban EMS in Japan The ISO 14001 Initiative of Tokyo Metropolitan Government
General Description:
Tokyo, the capital of Japan, is located in the central Japan. It has an area of about 2,200 square kilometers (about 0.6% of the total land area of Japan), with a population of about 11.8 million (about 10% of the total population in Japan). The Metropolis consists of the following three parts: 1) 23 wards which consists of the urban central part of Tokyo; 2) Tama area in the western part of Tokyo which consists of suburban cities, farming regions, and mountainous regions, and 3) scattered island area in the Pacific Ocean.
Background for the movement toward the acquisition of ISO14001 certificate:
Being the capital of Japan, as well as one of the largest cities in the world, Tokyo has been facing serious environmental issues brought about by significantly increasing urban activities. In facing such a situation, it was reported that the government had come to recognize the need to take voluntary actions for protecting the environment, by recognizing itself not only as the governing body but also as the largest 'consumer' of everyday goods such as paper etc.
In 1997, it decided to introduce an action plan called, "Eco-Up Plan", which outlines quantitative goals to be met for such items as paper and utility use in the office to make the its offices 'greener'. It also includes concrete action plans that need to be considered in pursuing these operations. In order to implement the Plan in a more effective manner, in 1998, it was decided to initiate the acquisition of ISO14001 certification.
Stage of acquisition of ISO14001 certificate:
Initiation of preparation for the acquisition: December 1998
March 2000 (expected)
Features of activities:
The acquisition process by the Tokyo Metropolitan Government is still under way. Once the Metropolitan headquarters office in Shinjuku (with 13,000 staff members) acquires the certificate, it is expected to be the largest organizational unit in Japan to acquire the certificate.
The final decision to acquire ISO14001 certificate was made by the Governor of Tokyo. Although there was some discussion on the potential benefits of acquisition, scope of targeted operations, etc., there was no major opposition against the decision to acquire the certificate. After the decision was taken, the Department of Environmental Protection was designated as the secretariat, while the Policy and Information Office (responsible for policy making and coordination) and the Finance Department (responsible for building management) were designated to jointly function with the secretariat as a project team. In addition, the Department of Construction (responsible for public construction work), Office for the Accounting Chief (responsible green procurement), and Staff Training Center (responsible for education and training) also played key roles in the process by actively participating as members of the expert's sectional meeting of the project team. Since there was insufficient knowledge regarding the processes and benefits of acquisition, seminars were organized by the Metropolitan government office by inviting professional ISO registrars and inspectors. Staff members also participated in seminars organized by private educational organizations. It was also reported that the office collected information from other local governments such as Osaka prefecture, Oita prefecture as well Joetsu City and Niigata prefecture which were also actively working on ISO acquisition.
The scope of the targeted activities to which EMS is to be applied is currently under discussion. The main internal objectives and long-term internal benefits of the acquisition are: 1) to raise environmental awareness of the staff members; 2) to reduce operational costs of the government office; 3) to increase environmental consideration in activities by the Metropolitan government office; and 4) to improve and increase effectiveness of the existing EMS. On the other hand, external objectives and long-term external benefits are: 1) to clearly present the attitude and determination of the government office to actively work for the establishment of a sustainable society; 2) to promote environmental consideration by other stakeholders in the Metropolis in their activities; and 4) to promote the acquisition of ISO14001 by ward, city, town, and village offices located in the Metropolis which would eventually lead to the development of efficient environmental administration by the government office.
With regard to the likely barriers in acquisition and implementation process of the ISO14001, it was reported that it would be difficult to decide how to apply and interpret the standards required by the certificate in the complex organizational framework of the Metropolitan government office. Regarding information dissemination and communication, it is planned that the office will actively disseminate the experience and know-how to the public once it acquires the certificate. It is also planned that once EMS is established, the continuous improvement is to be made in order make the system more efficient and environmentally sound.
Gifu Prefecture
Urban EMS in Japan The ISO 14001 Initiative of Gifu Prefecture
General Description:
Gifu prefecture is located in central Japan and is one of the few prefectures in Japan without a coastline. It has an area of about 10,600 square kilometers, with a population of about 2,120,000. About 80 percent of the land is forest area, and it has plains in its south. However, due to rapid urbanization, it has experienced various environmental problems such as air pollution caused by automobile exhaust emissions, water pollution caused by run-off and drainage, and increased waste generation from businesses and households. Furthermore, its farming areas have also faced lowered capacities for environmental protection due to high depopulation.
Background for the movement toward the acquisition of ISO14001 certificate:
In facing various environmental issues mentioned above, there has been growing concern by the public for environmental amenities, as well as recognition by the prefectural government for the need to take immediate actions against environmental issues not only from the local perspective, but also from global perspectives.
The environmental protection activities of Gifu Prefecture are featured in the initiative called, "Love Earth Gifu Initiative" which was introduced in 1990. It is a framework of environmental activities carried out by the prefectural government, and it is clearly stated on an official report that the objective of the initiative is to promote other stakeholders in the prefecture to take actions in reducing negative impacts on the environment, and the prefectural government itself taking lead in carrying out environmental activities.
In order to better pursue the Love Earth Gifu Initiative, in 1996, the prefectural government established "Gifu Agenda 21", which consists of concrete implementation plans with targeted quantitative goals for the prefectural government, businesses, and households, in their activities for environmental protection.
Furthermore, in 1998, in facing an increased need for environmental issues to be tackled in partnership with the government, businesses and citizens, the prefectural office decided to acquire the ISO 14001 certificate by recognizing the need to reduce negative environmental impacts of its activities as a major consumer, as well as aiming at promoting similar activities among other stakeholders in the prefecture. Thus, the decision to acquire ISO14001 was decided and the "New Love Earth Gifu Initiative" was introduced by expanding the original Initiative to include ISO14001.
Stage of acquisition of ISO14001 certificate:
Initiation of preparation for the acquisition: November 1998
July 1999
Features of activities:
The final decision to acquire ISO14001 certificate was made by the Prefectural Governor, and it was reported that there was no objection in the decision making process since the decision was strongly endorsed by all involved. No pressure was also reported from the citizens groups to the prefectural office to defer acquisition. Once the decision was made, significant part of the task was carried out by the Environmental Policy Division of the Department of Health, Welfare and Environment, which functioned as a secretariat for the acquisition process. The EMS was established by the prefectural office itself, without having an outside consultant, but experts were invited to the office to give training sessions for staff members. In the process of acquisition, staff members who are involved in the acquisition process visited several other local governmental offices (Saitama prefecture, Osaka prefecture, etc.) in order to get information regarding the acquisition and implementation process of the ISO14001.
The scope of the application of EMS is all activities carried out by the prefectural office. The main internal objectives and long-term internal benefits of the acquisition were reported to be: 1) to raise environmental awareness of the staff members by acquiring certificate from a third organization; 2) to carry out activities of the prefectural office in an environmentally sound and internationally recognized manner; 3) to reduce the operational costs by carrying out its activities in more efficient manner. On the other hand, external objectives and long-term external benefits were reported to be: 1) to promote environmental activities in the prefecture; 2) to promote city, town, and village offices and businesses in the prefecture to acquire ISO certification by the enlightened effect of the prefectural office's action; 3) to increase accountability of operations by the prefectural office; and 4) to improve the eco-friendly image of the prefectural office.
As a result of the requisition of the certificate and its implementation, it was reported that, internally, the office experienced: 1) reduced negative environmental impact; 2) reduced operational costs; and 3) accumulation of know-how related to EMS. On the other hand, it was reported that externally, the acquisition of the certificate and its implementation had contributed to: 1) increased acquisition of ISO14001 certificate by city, town, and village office as well as businesses in a prefecture. However, it should be noted that it was reported that the acquisition of the certificate had not effected other policies of the prefectural government itself.
With regard to the information dissemination and communication, it was reported that the prefectural office has presented its environmental plan and manual for environmental management through the Internet. In addition, it released the manual of environmental management, rules of environmental management and other related documents through a Local Area Network (LAN) which is accessible by city, town and village offices in the prefecture. Seminars and consultation services regarding the acquisition and implementation of ISO14001 have been organized in order to disseminate the experience of the prefectural office. With regard to the barriers in the process of acquisition, it was reported that due to the tight financial situation as well as the pressure for administrative reform which requires significant amount of work, the office experienced difficulties in assigning staff members to work exclusively on the acquisition and implementation of ISO14001.
With the promulgation of the Sustainable Development Goals (SDGs) by the world community in 2016, efforts at the global and local levels have a clearer picture of what neds to be done. Of particular relevance to urban areas is SDG #11, which calls for making cities inclusive, safe, resilient and sustainable.
The policy priority for urban environmental management systems is becoming all the more critical. As the above four case studies illustrate, a city-wide EMS has several advantages in taking an integrated and holistic approach to urban environmental management. At the same time, it also inspires other entities within the city, such as private sector and civil society entities, to undertake development and implementation of EMSs within their premises.
The ISO 1400 series of standards have also gained prominence recently due to the implementation of another ISO standard - 37106. This standard on Sustainable cities and communities provides guidance on establishing smart city operating models for sustainable communities.
Ultimately, with or without an ISO certification - urban environments need to be properly managed. The problems are familiar - Wastes need to be recycled and reused, Water used efficiently, energy shifted towards renewables. But, as the four examples from Japan shows, ISO 14001 provides an added incentive, a systematic guidance for cities to manage their environments.
An earlier version of this publication was written by the author and Makiko Yashiro, "Cities, Environmental Management Systems and ISO 14001: A View from Japan" Tokyo: United Nations University
ISO 14001 defines a voluntary environmental management system (EMS). Used in conjunction with appropriate goals, and with management commitment, the standards help improve environmental performance and reduce negative impacts. They provide an objective basis for verifying claims about a local government's environmental performance in its day-to-day operations.
