[Public Papers of the Presidents of the United States: George H. W. Bush (1992, Book I)]
[March 24, 1992]
[Pages 498-502]
[From the U.S. Government Publishing Office www.gpo.gov]



Message to the Congress on Environmental Goals

March 24, 1992
To the Congress of the United States:
    In 1991 two events set the stage for a new era in history: the West 
won the Cold War and the United States led a U.N. coalition to roll back 
aggression in the Middle East. Both watershed events demonstrated the 
power of sustained international cooperation in pursuit of just and 
moral causes. They underscored the need for U.S. leadership in a 
complex, interdependent world.
    Historic changes are also occurring in the relationship between 
humanity and the environment. We increasingly recognize that 
environmental improvement promotes peace and prosperity, while 
environmental degradation can cause political conflict and economic 
stagnation. We see that environmental protection requires international 
commitment and strategic American leadership in yet another just and 
moral cause.

Merging Economic and Environmental Goals

    As I often have stated, we can have both economic growth and a 
cleaner, safer environment. Indeed, the two can be mutually supportive. 
Sound policies provide both.
    My environmental strategy seeks to merge economic and environmental 
goals. For example, boosting two engines of economic growth--
technological change and international trade--can also provide benefits 
for the environment. Likewise, regulatory approaches that emphasize 
economic efficiency can help lower the costs of securing greater 
environmental quality. The following examples are illustrative:
    Investments in Technology: My Administration has invested 
aggressively in key areas of research and development that will boost 
productivity and economic performance. Several technologies heralded 
primarily for their benefit to economic growth and competitiveness, such 
as advanced materials, high performance computing, electric batteries, 
and biotechnology, also have valuable environmental applications. 
Increasing investments in basic environmental research will enable 
policymakers to devise more informed, effective, and efficient policies.
    International Trade: In negotiations on the General Agreement on 
Tariffs and Trade (GATT), the United States calls on other nations to 
reduce farm subsidies, which harm competitive farm exports and 
contribute to environmental degradation. In parallel with negotiations 
toward a North American Free Trade Agreement (NAFTA), the United States 
and Mexico are expanding environmental cooperation. A free trade 
agreement would lead to stronger growth in both countries and provide 
increased financial resources for environmental protection.

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    Economically Efficient Regulations: Our Clean Air Act initiatives 
spur utility energy efficiency through innovative tradable sulfur 
emission allowances and an overall cap on emissions. Restraining 
electricity demand cuts emissions of carbon dioxide and acid rain 
precursors, lowers energy bills for homeowners and businesses, and 
limits the need for new powerplant construction.

The Global Environment and Development

    Robust economic growth is needed to meet the needs and aspirations 
of the world's peoples. At the same time, the nations of the world must 
ensure that economic development does not place untenable burdens on the 
Earth's environment.
    My Administration has been working with business leaders, 
environmentalists, scientists, and the governments of other countries to 
develop more effective, efficient, and comprehensive approaches to 
global economic and environmental issues. Preparations for the United 
Nations Conference on Environment and Development (UNCED or Earth 
Summit), which convenes this June in Rio de Janeiro, Brazil, have 
accelerated this process.
    My priorities for this historic conference are as follows:
    Sign a satisfactory global framework convention on climate 
            change;
    Agree on initial steps leading to a global framework 
            convention on the conservation and management of all the 
            world's forests;
    Improve U.N. environmental and developmental agencies as 
            well as the Global Environment Facility (GEF), which 
            provides financial assistance to developing nations in 
            meeting the costs of gaining global environmental benefits;
    Launch an action program to conserve biodiversity and, if 
            possible, sign a satisfactory global framework convention on 
            biodiversity;
    Agree on a strategy and expand efforts to improve the 
            condition of oceans and seas; and
    Adopt a strategy and initiatives to promote technology 
            cooperation in a free market context.
    Climate Change: On behalf of the United States, I hope to sign by 
June 1992 a global framework convention that will commit as many nations 
as possible to the timely development of comprehensive national climate 
action plans. Such plans would commit nations to a process of continuous 
improvement, addressing sources and reservoirs of all greenhouse gases 
as well as adaptation measures. Parties to the convention would compare 
their action programs on a regular basis and revise them as necessary.
    By producing specific, comprehensive environmental commitments that 
fit each nation's particular circumstances, this approach is preferable 
on environmental and economic grounds to the carbon-dioxide-only 
proposals that others have espoused. The United States will continue to 
restrain or reduce its net carbon dioxide emissions by improving energy 
efficiency, developing cleaner energy sources, and planting billions of 
trees in this decade. But an exclusive focus on targets and timetables 
for carbon dioxide emissions is inadequate to address the complex 
dynamics of climate change.
    Forests and Biodiversity: The nations of the world need to do a 
better job of studying and conserving the diversity of life on Earth. 
Nations also need to work together to improve the management and 
protection of all the world's forests. For these reasons, I am renewing 
my call for a global framework convention on the management and 
conservation of forests and restating the U.S. hope that UNCED will be 
the occasion for making progress toward such a convention. I am also 
hopeful that a convention on the conservation of biodiversity may be 
signed at UNCED.
    Institutional Reform and Funding: Member nations need to coordinate 
U.N. structures and make them more efficient and effective in meeting 
UNCED goals. A related priority is to continue development of the World 
Bank's Global Environment Facility (GEF). The GEF should become the 
principal vehicle for assisting developing nations with the incremental 
costs of gaining global environmental benefits under new international 
agreements.
    Oceans: Coastal and estuarine areas in-

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clude some of the most diverse and productive ecosystems on Earth. 
Increasing population and development are stressing these areas, 
particularly in nations that lack effective programs to protect and 
manage marine resources. The United States urges UNCED parties to adopt 
a set of principles and an action plan to address such issues as the 
status of living marine resources, coastal zone management, ocean 
monitoring, and land-based sources of marine pollution.
    Technology: The UNCED participants should adopt a strategy and 
initiatives to promote market-based environmental technology cooperation 
with developing nations. In some cases, the transfer of environmentally 
preferable technologies results from official foreign assistance. 
However, in the vast majority of cases it occurs as the result of 
private sector activities such as direct foreign investment, joint 
ventures, licensing, exports, and professional training. Thus the role 
of governments and international institutions should be to foster the 
market conditions that accelerate private sector activity in the growing 
global market for environmental goods and services.

The Domestic Environment

    In the midst of increased attention to global environmental issues, 
the United States in the last 3 years has enacted and begun to implement 
sweeping environmental reforms. We will continue to take action 
predicated on sound science and efficient solutions. State and local 
governments, businesses, community groups, and individual citizens must 
also play a part.
    A number of items on the environmental agenda, including 
reauthorization of the Clean Water Act, the Resource Conservation and 
Recovery Act, and the Endangered Species Act, require a thorough, 
judicious review with an eye toward the long term. Wherever possible, 
such legislation should encourage economically sensible, market-based 
mechanisms. Quick-fix actions will not be in the best interest of the 
environment or of our economy.
    The Congress should make a significant contribution to economic 
growth and the environment by taking the following steps during this 
session:
    Enact balanced national energy legislation, providing equal 
            measures of new conservation and production;
    As requested in my budget, provide increased funds to a 
            number of key environmental and natural resources programs; 
            and
    Establish a U.S. Department of the Environment.
    National Energy Legislation: In the year that has passed since I 
proposed a National Energy Strategy (NES) providing equal measures of 
new energy conservation and production, the Administration has moved to 
implement more than 90 NES initiatives that do not require legislative 
action. The Congress has followed through by increasing funding for an 
array of research and development initiatives. Now, in addition to these 
measures, the Congress needs to complete action on comprehensive 
national energy legislation.
    Environmental and Natural Resources Budget: Within the context of 
initiatives to tighten Federal budget discipline, my proposed budget for 
fiscal 1993 reflects my continuing belief that we should increase 
national investments in key environmental and natural resources 
programs. Among my priorities are the following:
    $1.85 billion (a 17-percent increase over fiscal 1992) for 
            the America the Beautiful program, including acquisition of 
            key park, forest, refuge, and other public lands; my program 
            to encourage public participation in the planting of one 
            billion trees per year; a partnership with the States to 
            create state parks and recreation facilities; and projects 
            to improve environmental infrastructure and recreational 
            opportunities on the public lands;
    A record $5.5 billion (a 26-percent increase over fiscal 
            1992) for the cleanup of Department of Energy facilities 
            involved in nuclear weapons manufacture;
    $201 million (almost double the fiscal 1992 level) for U.S.-
            Mexico border region cleanup, consistent with the 
            Environmental Action Plan I presented to the Congress last 
            year in support of the proposed North American Free Trade 
            Agreement;

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    Almost $1 billion for energy research and development, 
            including over $350 million for conservation research and 
            development (more than double the fiscal 1989 level) and 
            $162.4 million (a 47-percent increase over fiscal 1992) for 
            transportation programs such as development of electric 
            automotive batteries and the purchase of 5,000 alternative-
            fuel vehicles;
    $812 million (a 35-percent increase over fiscal 1992) for 
            wetlands research, acquisition, restoration, and 
            enhancement, achieving a 175-percent increase over fiscal 
            1989 levels;
    For the second year in a row, $340 million for accelerated 
            construction of sewage treatment facilities in six coastal 
            cities that currently have inadequate treatment facilities;
    $7 million (a 46-percent increase over fiscal 1992) for the 
            designation and management of National Marine Sanctuaries;
    $229 million (a 22-percent increase over fiscal 1992) for 
            implementation of the 1990 Clean Air Act;
    $1.75 billion (an 8-percent increase over fiscal 1992) for 
            cleanup of Superfund toxic waste sites; and
    $1.37 billion (a 24-percent increase over fiscal 1992) for 
            further expansion of the world's largest global climate 
            change research program.
    U.S. Department of the Environment: Considering the scope and 
importance of responsibilities conferred upon the Environmental 
Protection Agency (EPA), I announced my support in 1990 for legislative 
efforts to elevate EPA to Cabinet status. The Congressional leadership 
has responded with controversial, extraneous amendments and 
parliamentary delays. This legislation should not be held hostage any 
longer. Once again, I call on the Congress to elevate EPA to Cabinet 
status and make it the U.S. Department of the Environment.

A National Commitment

    There is a growing commitment from all segments of society to 
improve the environment. A key element of my environmental strategy is 
encouraging private companies and organizations to work with each other 
and with government to deliver conservation benefits that go far beyond 
what government acting alone could provide.
    In July 1991 I named leaders of business, environmental, 
recreational, educational, and philanthropic organizations to serve as 
members of the President's Commission on Environmental Quality (PCEQ). I 
have challenged this Commission to develop and implement an action 
agenda to improve the environment through voluntary private sector 
activities that meet the test of economic efficiency.
    I also established a Presidential medal for environment and 
conservation achievement and had the honor of presenting medals to an 
outstanding group of Americans last October. This program rewards 
private initiative in service to the environment in a manner equivalent 
to long-standing Presidential recognition of excellence in the arts, 
humanities, sciences, and world affairs.
    We have encouraged additional private sector initiatives through 
such ground-breaking efforts as the ``Green Lights'' energy efficiency 
project, the ``33-50'' toxic emission reduction program, the U.S. 
Advanced Battery Consortium to support development of electric vehicles, 
and land management partnerships between conservation groups and the 
Departments of Defense, Agriculture, and the Interior.

Freedom's Full Meaning

    As more people around the world join the democratic family and reach 
for their God-given rights and aspirations, we Americans who have led 
the way for over 200 years will continue to bear a responsibility to 
give freedom its full meaning, including freedom from want and freedom 
from an unsafe environment.
    The Cold War was a stark test of the global community's faith in 
these ideals. We passed that test.
    The deadlock in negotiations for improved international trade rules 
is another challenge to the principles that have drawn the world closer 
together in the last half century. We must not fail that test.
    These struggles for national security and economic growth are now 
joined by envi-

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ronmental concerns such as deforestation and potential climate change, 
which also have profound long-term implications. The year ahead will 
test our ability to redefine the relationship between humanity and the 
environment--and in so doing, to secure a greater peace and prosperity 
for generations to come. We must not fail that test.

                                                             George Bush

The White House,
March 24, 1992.