Description
DES proposed selecting firms at a single industrial park; assisting these firms in developing an EMS conforming to the ISO 14001 model; and, observing performance changes resulting from implementation of such systems.
RESEARCH INTO THE EFFECTIVENESS OF
ENVIRONMENTAL MANAGEMENT
SYSTEMS
FINAL
A report to
US Environmental Protection Agency, Region I, New England
August 2002
The New Hampshire Department of Environmental Services
ACKNOWLEDGEMENTS
Many people contributed to the work represented in this report. The New Hampshire
Department of Environmental Services would like to thank the DES ISO 14001 Advisory
Committee for contributing their time and expertise; the United States Environmental Protection
Agency for providing funding and support; the research staff at the University of North Carolina,
Chapel Hill and at the Environmental Law Institute for their hard work; W. Gary Wilson of
Harding-ESE for excellent professional assistance; and the Multi-State Working Group on EMSs
for inspiration, context and views at the national and international level.
Finally, our thanks go most especially to the companies that participated with us in this research
project for opening their doors and sharing how they address their environmental concerns.
NHDES-CO-01-03
RESEARCH INTO THE EFFECTIVENESS OF
ENVIRONMENTAL MANAGEMENT
SYSTEMS
FINAL
A report to
US Environmental Protection Agency, Region I, New England
Prepared by:
The New Hampshire Department of Environmental Services
6 Hazen Drive, P.O. Box 95
Concord, NH 03302-0095
August 2002
Printed on 100% Recycled, Process Chlorine Free Paper
ACKNOWLEDGEMENTS
EXECUTIVE SUMMARY 1
1. INTRODUCTION 4
2. PROJECT DESCRIPTION
2.1 Introduction 7
2.2 Training 8
2.3 DES ISO 14000 Advisory Committee 8
2.4 Multi-State Working Group on EMSs 9
3. PROJECT ACTIVITIES
3.1
3.2
3.3
3.4
3.5
Recruitment and retention of participants 11
Changes in expectations 12
Input from participant firms 14
DES Advisory Committee 16
Other DES EMS activities 21
4. RESULTS AND LESSONS LEARNED
4.1 General Lessons and Results 23
4.2 Small Businesses 24
4.3 Specific Notes on New Hampshire Participating Firms 25
4.4 Summary of National Research Results 27
5. SUMMARY 29
BIBLIOGRAPHY
APPENDICES
A. Grant app. work plan
B. Descriptions of the other states’ projects
C. NH’s EMS law & the required reports to the legislature
D. Description of EMS Implementation Training Program
E. Roster and Minutes of DES Advisory Committee meetings
F. Blank Cooperative Agreement Between DES & Participating Company
EXECUTIVE SUMMARY
In 1997, the New Hampshire Department of Environmental Services (DES)
responded to a grant request by EPA Office of Wastewater Management (OWM) which
was targeted on:
1. Encouraging the voluntary use Environmental Management Systems (EMSs);
2. Researching the effectiveness of EMS use; and
3. Examining the use of positive incentives by government for organizations that
use EMSs
DES proposed selecting firms at a single industrial park; assisting these firms in
developing an EMS conforming to the ISO 14001 model; and, observing performance
changes resulting from implementation of such systems. DES was partially successful
in reaching these goals. At the same time, the NH legislature required the DES
Commissioner to recognize the ISO 14001 standard and take actions to disseminate
information n the standard and determine whether certification to the standard ensured
compliance with existing legal or regulatory requirements of the DES. Further, a Mutli-
State Working Group (MSWG) working on the intersections of EMS use and public
policy was started at about the same time. DES participated in MSWG’s efforts.
DES recruited five companies at the Pease International Tradeport, in Portsmouth
and Newington, NH) who began training in the late spring of 1998 and later in that year
three additional companies located near the Tradeport. Training on EMS
implementation was provided to these companies through the middle of 2000.
An Advisory Committee was formed to disseminate information on EMSs and their
use and to assess possible government incentives for the use of EMSs that might be
considered.
Ten states, including NH, participated with other parties in establishing a MSWG
data protocol designed to measure the effectiveness of EMS application, an effort that
was also funded by OWM.
Of the firms that initially showed interest in participating, several dropped out during
the process. Early in the process, a warehousing firm, decided that their environmental
impacts were so minimal that developing an EMS would not be worthwhile. Later, a
powder coating firm dropped out since the manager was a) running two shifts; and b)
approaching management from a “fire fighting” approach. Another firm simply did not
participate and their Cooperative Agreement with DES was terminated. By the Fall of
1999, five firms were participating in the process.
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A number of general conclusions can be drawn from the experience:
1. An organization intending to implement an EMS must accept the Plan-Do-Check-
Act management style; otherwise the EMS becomes a single project.
2. Financial payback on the effort of EMS implementation may be generally short
and, based on a limited sample, appears to be mostly related to non-regulated
areas such as energy use.
3. Small businesses typically lack the resources to undertake EMS development
and their owners/operators have limited management training.
4. The greatest progress among participants was in those with a clear and active
commitment from upper management and where staff throughout the
organization became involved in the EMS development process.
5. One of the participants experienced difficulties due to their focus on lean
manufacturing and just-in-time delivery requirements. Focus was at the shift
level and broader management planning and follow through was found difficult to
achieve.
EMSs, as a process, are still in an early evolutionary stage. As previously noted,
company size and management focus is critical with respect to putting an EMS into
place. Smaller companies, and wholly production-oriented companies, face greater
difficulties in establishing EMSs.
There are limitations in the most commonly used EMS standard, ISO 14001.
Information developed in the process is not necessarily made available to the public,
which is a key public policy issue. Details of how compliance with regulatory
requirements is assured through EMS use remain vague. The US system of
registering EMSs to the ISO 14001 standard contains a high degree of variability.
Nonetheless, DES encourages the development of EMSs as a means for
organizations to galvanize energies and direct them toward a higher level of
environmental and ultimately economic performance. There is a pay back, but as with
all pay back calculations, it must be measured in terms of the required investment and
in competition with other capital and operating expenses. The expected benefit in this
case is often the difficult to evaluate “avoided cost.” It is clear that each and every
company can not or will not be willing to make the considerable investment required to
establish an EMS.
This DES effort is part of a national research project referenced in the body of the
report and found athttp://ndems.cas.unc.edu/. Selected conclusions from the work are:
• Corporate policy matters and organizational culture are powerful influences on
how and to what extent an EMS progresses.
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• Regulatory expectations are the strongest external influence on EMS
implementation, although for businesses internal drivers outweigh any external
drivers.
• External stakeholders are rarely invited into the EMS development process since
the ISO 14001 standard requires only that the organization’s policy be made
publicly available.
• The scope of an EMS may or may not cover an entire facility
• There is great variation in how environmental activities, aspects and impacts are
categorized, described and ranked.
EMSs are of growing significance and will continue to gain ground. Environmental
matters, even if limited to regulated matters, are sufficiently complex that an organized
system appears to be the only way to reliably achieve good performance. However,
motivation to have an EMS varies from organizations that adopt one as part of a
comprehensive approach to environmental affairs while others adopt it with reluctance
because of demand to do so by a dominant client or perhaps as a result of an
enforcement settlement. Given this breadth of motivation, results are uneven.
While DES recognizes that many jurisdictions have implemented programs to use
EMSs as a tool to achieve better environmental performance, resource constraints
indicate that no such new program can be started. DES for the foreseeable future
intends to use its existing assistance programs to encourage EMS use.
-3-
1. INTRODUCTION
Throughout the 1990's, the New Hampshire Department of Environmental Services
(DES) moved away from an enforcement-only approach to environmental protection by
encouraging activities aimed at achieving regulatory compliance and environmental
improvement through a combination of compliance assistance, pollution prevention
outreach, innovative targeting strategies, and a strong regulatory presence. This multi-
pronged and multi-tiered approach met many of DES’s environmental protection goals
as articulated in its Strategic Plan, Performance Partnership Agreements with the US
Environmental Protection Agency (EPA), and other documents.
By the late 1990's, companies in the United States and elsewhere had accumulated
significant experience with managing their environmental impacts and liabilities.
Businesses began to recognize the limitations and costs associated with the traditional
reactive and compliance-focused management of the environmental aspects of their
operations. Business leaders recognized that their environmental impacts often
resulted in significant uncontrolled and unquantified liabilities. Therefore, they began to
take proactive, systems-based approaches that moved their companies toward more
sustainable and cost-effective ways of doing business, using pollution prevention
methods and integrating environmental concerns more fully into the corporate structure
and operations. They realized that better performance in environmental areas could be
used to drive better performance in the marketplace. To achieve this performance, a
business management tool was developed through standards-making bodies to help
business effectively handle their environmental affairs - the Environmental Management
System, or EMS.
An EMS is a comprehensive, organized and documented management system aimed at
achieving full control over, and maximum performance in, an organization’s
environmental affairs. In the early 1990's, several EMS standards were promulgated by
national standard making bodies. These standards did not agree with each other in all
details. To address the conflicts between the national standards, and seeing a business
opportunity, the International Organization for Standardization (ISO) in Geneva,
Switzerland began the process of making a consensus international standard for
environmental management systems. Their EMS standard, ISO 14001, was finalized in
September 1996. While DES acknowledges that other EMS standards can be used,
this report is written around the ISO 14001 standard, as it is the standard which is most
used in the US at this time.
Environmental agencies in the United States, especially the Environmental Protection
Agency (EPA), followed this standards development process closely. EPA participated
in the process of creating the ISO 14001 standard. Other agencies at the state level
have become more and more aware of the private sector’s move toward use of EMSs,
as they have seen the behavior of at least some of their regulated parties change.
-4-
The tools available to environmental agencies tend to reflect the times in which the
specific programs were established. Through the 1970s and 1980s, and into the 1990s,
environmental concerns were often not effectively addressed by businesses, which led
to relationships between the private sector and the environmental/regulatory agencies
that were adversarial, and costly in terms of dollars and time spent. A command-and-
control system arose. The agencies relied almost solely on strict regulation and
litigation to achieve the goals set by their overseeing legislatures.
The US framework of laws and regulations is focused on single issues or media – water
quality, air quality, hazardous waste management, etc. This framework is reflected in
organizations, responsibilities and budgets, which can cause administrative problems in
addressing issues that cross media/legislative boundaries. Problems associated with
the gasoline additive MTBE are a recent example: a well-meant and successful attempt
to solve air quality problems inadvertently led to water contamination problems. With a
media-specific framework built into the structure of most environmental agencies, a
holistic systems approach is often difficult to achieve. The private sector is less
handicapped in this sense, they must deal with all their environmental issues or face
consequences, and so they are becoming more systematic in their approach.
The older, single-media, “command-and-control” style of environmental protection has
had many successes and many important environmental gains have been made.
However, the newer environmental challenges that the agencies and the public they
serve face at the turn of the century require new problem-solving approaches. The old
way of doing business may be ineffective in making future progress.
In theory, a facility that adopts and effectively implements an ISO 14001 EMS should, in
the long run, comply with all environmental regulations without the threat of enforcement
since the standard requires procedures for identifying and complying with regulations.
Further, a comprehensive EMS may drive better environmental performance in areas
that are not regulated. While the environmental agencies want to encourage
performance beyond the regulatory minimums, and in non-regulated areas, they have
had difficulty finding the appropriate means to do so.
A change in the private sector toward better and more comprehensive environmental
performance beyond the regulatory requirements raises the possibility of the agencies
being able to re-focus their efforts. The hope is that if the agencies can identify firms
with EMSs in place as better performers, resources could then be re-prioritized away
from the high-performing facilities and toward facilities that require closer scrutiny.
At this time, the environmental agencies do not have the resources to oversee all the
environmental impacts of all regulated parties using the traditional tools. Since it does
not appear likely that agency budgets and staff will grow to the extent necessary, to
triple perhaps, other means are sought. Further, DES and other agencies have learned
over the years that the confrontation implicit in command-and-control regulation tends to
raise its own opposition. These agencies are learning that an assistance-first
-5-
philosophy will often get more results at lower cost to the agency, and thus to the public,
while leaving the enforcement option available to use when needed.
In basic terms, the environmental regulatory system (loosely defined) is a system
essentially designed to modify business behaviors to avoid negative impacts to public
health and the environment, and to avoid costly clean-ups in the future. Any effective
behavior modification system has rewards and punishments. However, environmental
command-and-control regulation (as used in the United States) has been a behavior
modification system designed mostly with punishments in mind, with very few positive
rewards. It must be understood in this context that withholding a punishment is
fundamentally different from offering a positive reward. This has led to a scarcity of
tools for the agencies to use to address different problems. Policy-research
institutions
1, 2
and policy-making branches of the government
3
have spent significant
resources over the last five to ten years addressing this issue.
Thus, there are several interrelated issues that can be addressed by focusing on EMSs
as a tool:
• The need to manage environmental problems previously not addressed to have an
impact beyond the current set of regulations and regulated areas;
• The desire to obtain environmental performance beyond the regulatory minimums;
• The perception that the command-and-control regulatory system may not be able to
adequately address certain problems not contemplated by the existing regulatory
system, at least not as the only tool available for all parties;
• The agencies’ resource limitations; and,
• A desire to use a systems approach to pull all environmental management efforts
into a cohesive and holistic package, while at the same time there is a new
systematic management tool for environmental affairs.
All these factors drive an intense interest by environmental agencies in the role of EMSs
in protecting public health and the environment.
However, there is a significant missing link. This missing link is real data or knowledge
on the performance of firms who use EMSs. Is it really better than the old way? In what
way is it better? Or is it just a green veneer on old practices? This report describes
DES’s effort, one of a set of efforts that various states have begun, to find out.
1 Especially see: Environment.Gov: Transforming Environmental Protection for the 21
st
Century,
November 2000, National Academy of Public Administration, Washington, DC
2 Managing a Better Environment: Opportunities and Obstacles for ISO 14001 in Public Policy and
Commerce March 2000, J. Morrison et al, Pacific Institute, Oakland, CA
3 Especially see: Aiming for Excellence: Actions to Encourage Stewardship and Accelerate
Environmental Progress, July 1999, USEPA
-6-
2. PROJECT DESCRIPTION
2.1 Introduction
In January 1997, the Office of Wastewater Management (OWM) at EPA Headquarters
published a Federal Register notice requesting competitive grant applications from
states for the purposes of encouraging the voluntary use of EMSs, especially the ISO
14001 EMS; researching the effectiveness of EMS use; and examining the uses of
positive incentives by environmental agencies for companies that use EMSs. DES
responded with an application, and in April 1997 EPA notified DES that they had been
accepted for funding. DES’s grant application work plan is attached as Appendix A.
DES’s proposal was to select firms at a single industrial park, assist those firms in
developing an ISO 14001 EMS, and observe what performance changes resulted from
implementation of the system.
During the same time frame, two other groups took actions affecting this proposed work.
The NH Legislature amended the statute describing the duties of the DES
Commissioner, requiring him to recognize the ISO 14001 standard and to take certain
actions to disseminate information on the standard, and perhaps most importantly, to
“Determine… whether ISO 14000 certification of certain entities ensures adequate
compliance with existing standards or requirements established by the department.”
4
The work conducted under this grant allowed DES to fulfill those requirements. The
actual legislation is in Appendix C of this report.
Also, a Multi-State Working Group on EMSs (MSWG)
5
began a major research effort to
determine the effectiveness of EMS, looking for changes in performance in areas of
rates of compliance with regulations, their existing management systems, environmental
performance, pollution prevention activities, consideration and involvement of
stakeholders in environmental decisions, and economic performance (costs and
benefits). This effort was made in cooperation with the same EPA office that solicited
the grant applications mentioned above. Most of the successful applicants (but not DES
at that time) were MSWG members. The data protocols developed by MSWG became
the research metrics for all of the states receiving EPA grants.
During the project period, the project managers of the various state projects met twice a
year with EPA and research staff to compare notes and progress and to address issues
that had arisen. DES was represented at all these meetings.
4 Chapter 295, Laws of 1997
5 See http:www.mswg.org
-7-
2.2 Training
DES competitively procured the services of a consulting trainer to provide assistance to
participating companies. Environmental Science & Engineering, Inc. (“ESE”)
6
of
Nashua, NH was selected.
DES recruited companies at the Pease International Tradeport (“Tradeport”, the former
Pease Air Force Base), and five companies began training in the late spring of 1998. In
late 1998 and early 1999, DES recruited three additional companies in the same region
of the state as the Tradeport.
The training was designed such that part of the ISO 14001 standard was introduced to
participants at a meeting held at DES offices at the Tradeport. The participants then
returned to their workplaces and either performed the appropriate planning task, or
implemented the appropriate part of the system. Additional assistance at each
company’s location was made available. This incremental approach, with homework, is
common in EMS implementation training. It is intended to enhance each company
taking ownership of the EMS. Training sessions continued through the spring of 2000.
The results of the training are outlined in Chapter 3. A description of the base training
program, from the contract documents, is in Appendix D.
A second type of training was also offered. Eight-hour seminars were offered to give an
introduction to the EMS concept, and specifically to ISO 14001, to DES staff and to
members of the DES ISO 14000 Advisory Committee (see sec. 2.3). About 15% of
DES staff attended, as did a few staff from another state agency, and almost all of the
membership of the Advisory Committee attended.
This second training program was very valuable by increasing awareness of the EMS
concept among state staff and the various groups represented on the Advisory
Committee.
2.3 DES ISO 14001 Advisory Committee
Two of the original grant requirements were to 1) test acceptance of the EMS concept in
the stakeholder community; and 2) assess possible regulatory incentives and flexibility
that might be appropriate for organizations that use EMSs. A stakeholder committee,
called the DES ISO 14000 Advisory Committee (“the Advisory Committee”) was
recruited to help address these issues by providing outside opinions and oversight, as
well as to keep interested parties informed as to what DES was doing. The Advisory
Committee included representatives from the business, academic, and environmental
communities, and government bodies in NH. A full Advisory Committee roster is
included in Appendix E.
6 This firm changed ownership twice during the project. For some of the time ESE was known as QST
Environmental, at a later time QST reverted to the ESE name.
-8-
So that discussions could proceed from a common level of knowledge, and to spread
information on EMS use further, an eight-hour seminar on EMSs was made available in
the Spring of 1998 to members of the Advisory Committee. Some members attended a
daytime session at DES’s office, which was primarily intended for DES staff. Other
members attended evening sessions, which were made available specifically for those
who could not devote a full workday to the other seminar.
The first meeting of the Advisory Committee was in April 1998. The Advisory
Committee met six times, with the last meeting to date in June 2000. The discussions
are summarized in Chapter 3; the minutes of the Advisory Committee meetings are in
Appendix E.
At the fifth meeting, in November 1999, the Advisory Committee requested that DES
develop a program that would offer incentives to companies that show they are
managing their environmental affairs effectively, using the presence of an EMS as a key
part of the evidence that the company is doing so. This concept is discussed further in
various sections of this report.
2.4 The Multi-State Working Group on EMSs
In 1996, a Multi-State Working Group on Environmental Management Systems (MSWG)
was formed to provide a forum for federal and state agencies, non-governmental
organizations, and representatives from industry and academia to examine the public
policy implications of environmental management systems, particularly ISO 14001.
MSWG has continued to meet quarterly to discuss issues related to environmental
management systems and ISO 14001 as well as the use of EMSs in innovative
regulatory programs. MSWG also holds larger annual national workshops on these
topics.
As noted in section 2.1, in 1997 MSWG established the beginnings of a data protocol to
measure the effectiveness of EMS use. OWM granted money to a consortium of the
Environmental Law Institute of Washington, DC, and the University of North Carolina at
Chapel Hill to develop data protocols, house the resulting database, and prepare
reports to the public.
After receiving its own grant, DES was made aware of this process. OWM proposed
that all ten participating states use the MSWG data protocols, on the theory that a
national-scale database of 50 to 100 firms, overseen by a major university, would yield
much more useful data than smaller separate state-specific databases. This database
is now referred to as the “National Database on Environmental Management Systems”
(NDEMS). DES agreed to this approach, and participated in the process of finalizing
the data protocols. DES has since become a full member of MSWG.
NDEMS is a public database. As such, the information is made available to the public
7
.
7 Seehttp://ndems.cas.unc.edu/
-9-
However, the firms participating in the various state projects are assisting the agencies’
research, and the project managers (and the participating firms) felt strongly that the
participating firms should be protected from nuisance attention brought about solely by
virtue of their participation in the projects. Also, while information on how incidents of
non-compliance are found and addressed is key to finding out how EMSs work, this
information which is often considered sensitive by the firms. The project manager group
and the research staff expended a great deal of time and effort resolving the conflict
inherent in this matter. It was agreed that the various agencies would address incidents
involving substantive environmental threat or harm themselves as if there was no
special relationship with the participating firm, but that the research staff would not
become involved in this. Only information aggregated so that incidents should not be
traceable to individual facilities is given to the public through NDEMS.
It should be understood however, that in most cases, and certainly in DES’s case, each
participating firm is in closer contact than usual with the agencies involved because of
their participation. None of the states have waived legal requirements for participating
firms.
NDEMS uses three different data protocols. The first, and longest one is the Baseline
Protocol, which describes the company and its environmental performance over a three-
year period, to establish a starting point. Using a three-year baseline period also at
least partly addresses the issue of study controls. The second is the EMS Design
Protocol, which describes how the company designed and implemented its specific
EMS. The third is the Update Protocol, in which the company is asked what has
changed in the time since the last protocol was submitted. The first two data protocols
are generic, and are available on the web athttp://ndems.cas.unc.edu/ . The Update
Protocols are customized, but a base version is available at the website. The facility is
shown the data from previous submittals, and they are asked to make changes as
appropriate.
As of the summer of 2002, results from more than 60 organizations’ Baseline Protocols,
more than 50 EMS Design Protocols, and almost 40 Update Protocols had been
completed through the QA process. Research papers are being written. Papers
completed can be found at the website mentioned above.
It should also be mentioned that vigorous attempts were made to recruit control facilities
from outside of the state projects. This effort did not bear fruit, partly due to budget
restraints with the research staff. Facilities in the control group, by virtue of their
‘control’ status, could not use the substantial in-kind assistance of the state project
managers. Efforts to get information from companies with EMSs, but who were not in
state programs, bogged down. Efforts to get environmental performance information
from companies that do not have EMSs was unsuccessful – in hindsight it seems
obvious that companies with no EMSs would not manage environmental information.
-10-
3. PROJECT ACTIVITIES
3.1 Recruitment and Retention of Participants
Beginning in late 1997, DES’s project manager began meeting with firms located at the
Pease International Tradeport, which is a growing industrial development at the former
Pease Air Force Base, near Portsmouth on New Hampshire’s seacoast. The purpose
of the meetings was to both educate the firms on the EMS concept and to recruit
participation in DES’s pilot project. Seven firms showed an active interest in
participating in the DES project. Five of these seven firms ultimately decided to
participate, and they signed Cooperative Agreements with DES describing their
participation in the project. A sample Cooperative Agreement is attached as Appendix
F.
The first training workshop for the participating facilities was held in May 1998. This
workshop covered the EMS concept in general, ISO 14001 more specifically, and
focused on development of a company’s environmental policy per ISO 14001 Section
4.2. Following this workshop, one participant dropped out of the project, having decided
that their environmental impacts were so minimal that developing an EMS would not be
worth the effort.
In this particular case, a warehouse operation, the person who convinced corporate
management that they should get into the EMS project was not the same person who
was sent to the first workshop. This new person was instructed at the last minute to
attend the training, and he did not have any orientation to the EMS process. He
recommended to corporate management that they drop out because their warehouse
had no environmental impact. While the environmental impacts of a small warehouse
are not the same as a manufacturer, the last minute personnel change was likely a
cause of this firm’s decision to drop out at this point. A lack of acceptance of the
significance of environmental concerns was also a factor. During the recruitment phase
of the project this was a concern mentioned several times by this firm. In the event, one
person’s belief in the importance of environmental affairs was insufficient to keep the
company in the project
Later in 1998, a second firm dropped out. This firm was a powder-coating firm
employing about 25 people. They work on a job-shop basis, on two shifts. The
manager of the firm, who was attending the EMS training sessions, decided that he
could not handle the expanded workload of EMS development in addition to all his other
duties.
In this instance, the manager understood that his shop had environmental impacts, and
he sincerely wanted to address them. However, his management style was personal
and hands-on. He “fought fires” as they arose; he tried to run both production shifts
personally. While he had success running his business, he did not have an
-11-
understanding or acceptance of the management methods generally referred to as
“Plan-Do-Check-Act” or TQM, which aim to produce continuous improvement. It seems
that this hands-on management style, with little delegation of authority, is not conducive
to developing an EMS.
In late 1998, DES recruited additional firms to participate in the project. A meeting with
the Pease Tradeport tenant group showed that no more firms at the Tradeport were
likely to participate, so recruitment was widened to the entire New Hampshire seacoast
area. Several firms expressed interest, and three signed Cooperative Agreements with
DES. These three firms, all ISO 9000 certified manufacturers, started EMS training in
the spring of 1999.
One of these three new firms failed to attend workshops and showed no interest in
participating in the project, so DES terminated that Cooperative Agreement. Therefore,
by the fall of 1999, five firms were participating. They were:
First group (start early 1998):
1. NH Air National Guard, 157
th
Air Refueling Wing (NHANG), a military unit still
operating on the former air base. Their EMS covers all NHANG operations.
2. Pease Development Authority (PDA), the landlord for Pease International
Tradeport. Airport and maintenance activities are covered under their EMS.
3. Fenris Technology Research, Inc. (Fenris), a very small firm, operating at
Pease, engaged in research and development of analytical laboratory equipment.
Their EMS covers all operations.
Second group (start early 1999):
4. Venture Holding Corporation (Venture). An ISO-9000 certified manufacturer,
producing plastic molded body parts for the automotive industry. Their EMS
covers all operations.
5. Foss Manufacturing Company, Inc. (Foss). An ISO-9000 certified
manufacturer, making non-woven fabric products. The automotive industry is a
major customer. Their EMS covers all operations.
By the fall of 1999, each group was at a similar stage of EMS development, so training
for the two groups was merged.
3.2 Changes in Expectations
When DES’s project was conceived, there were some early expectations that later
proved unrealistic. The first of these was the expectation that the project could result in
-12-
a generic template usable by small businesses in general to develop an EMS. This
turned out to be a mis-guided idea. The ISO 14001 standard itself is the template.
Beyond that, the vast differences between different business sectors make development
of a small-business-specific EMS template impossible. However, sector-specific EMS
templates seem quite possible, and some of these are being developed by others.
8
Another unrealistic expectation had to do with the pace of EMS development. The
original concept was to move the firms through their training in a six to seven month
time frame, thus leaving more time in the (originally conceived) two-year project to
observe changes in the firms’ environmental performance. All the firms, but especially
the first three firms, ended up moving through the process at a rate much slower than
envisioned.
One of the early tasks in EMS implementation is analysis of a firm’s products, services
and activities to determine how each of these interact with and impact on the
environment, and to rank the impacts. This analysis is one of the key value-added
items of an EMS, bringing an understanding of a firm’s operations that was not possible
before the analysis. However, the concept is new to most people, the nature of the
analysis is not specified in the standard, and getting started can take some effort. Also,
once started, most often the effort is becomes surprisingly absorbing, and all of the
firms involved in DES’s project spent much effort in doing the best possible analysis of
their environmental impacts and ranking them in the best possible way. While this may
have added some value, it cost time, and was a key factor in the training schedule
becoming protracted.
More detail on the behavioral aspects of each participating firm is provided in Chapter 4
of this report.
Another factor in the delays was the non-enforceable nature of the Cooperative
Agreements. The firms involved are assisting DES in doing research on EMSs, and
there were no sanctions for not progressing as anticipated. DES could not force the
firms to go faster than they were willing to go. However, it may be that this delay did not
impede the overall research, because of the next mistaken expectation, which relates to
the nature of a national research effort.
As noted in Section 2.4, EMS projects in ten different states are sending common data
to NDEMS. Data protocol development took longer than expected, in part due to the
process of getting ten states, a federal agency, a university and an environmental group
to agree on both strategy and details; and also in part due to personnel turnover at the
University of North Carolina. The EMS Design Protocol was not available until mid-
1999, and the Update Protocol was not available until early 2001.
In addition to issues related to protocol development, the data protocols themselves,
especially the Baseline Protocol, contain very large quantities of data. Therefore review
8 e.g., EPA’s Design for the Environment Program,http://www.epa.gov/opptintr/dfe/pwb/case_studies/case8/
-13-
and synthesis of the incoming data protocols required an unexpected amount of staff
processing time at UNC and ELI. Quality control reviews of incoming data protocols,
and making certain that each company was comfortable with the data, added time to the
project. Also, it turned out that assembling the computer database to house and use
the data was a major unanticipated task and UNC had to find additional skilled staff to
build the actual database structures.
As of mid-2002, NDEMS is now able to report on changes in companies’ environmental
performance as a result of EMS use. This is three years later than originally
anticipated.
In part, these delays can be attributed to the newness of the EMS concept. In early
1997, the environmental agencies were very interested, as they still are, in determining
out what actual environmental performance an EMS brings to a company. This turned
out to be a far more complex question to address than it first appeared, so the actual
effort needed to address the issue was greater than expected.
3.3 Input From Participating Companies
After several requests, only two of the participating companies provided comment on
the project . These comments focused on the training program by Environmental
Science & Engineering, Inc. The comments are provided verbatim
9
here:
NH Air National Guard:
“ --Overall methodology and instruction were excellent. Instructor was very
good (especially all the review sessions Gary had to do to get our minds back to
where we had left off)
--Gary (Wilson) was a very effective teacher, and we appreciated that he
came to the Guard to provide specific training to all our Supervisors at the
inception of the program.
--Handout materials were very good and the ISO book (ISO 14000 Answer
Book, Sasseville, Wilson & Lawson, John Wiley & Sons, 1997) helped refresh
our memories when we needed it.
--We believe it was worthwhile for us to go through the process to look at
ourselves. It was an eye opener as to how our organization in all its activities
affects the environment.
9 Only a very few grammatical corrections were made to these comments, none of which change the
meaning.
-14-
--We believe that the ISO process, if we were further along, would have
helped us in our EPA multimedia inspection in such areas as awareness of
potential problems.
--ISO 14000 is clearly a way to improve our regulatory compliance...it's just
finding the time to make it a priority.
Finally, we would be willing to share our experience with other companies who
may be considering going through the process to give them a quick view as to
our experience.
(ed.: Since these comments were provided in June 2000, Air National Guard
personnel made a presentation at an MSWG meeting on how they are
implementing their EMS.)
Venture Industries:
“This facility expected to be able to participate in the series of workshops more fully
than it did. Here are the reasons (excuses) as to why the workshops were not as
helpful as expected:
1. The process as presented proved too theoretical for us. The identification of
environmental aspects and ranking of impacts was performed by a consultant
(another consultant, hired by Venture corporate headquarters), and not by plant
employees because the procedure was too academic, the criteria too subjective,
and the product was too irrelevant to the average employee.
2. The plant has a high turnover in both production and management personnel,
consequently, there is less continuity in our staffing than would be expected.
3. The corporate culture has embraced “continuous improvement” which often
means “constant change”.
4. The facility is production driven, and while there have been attempts to empower
the hourly production employees to manage aspects of their work, the facility is
not staffed to the point where employees can be relieved from their production
line duties regularly enough to attend project training or implementation
meetings. These production demands prohibit team members from spending
time to work on project assignments between meetings. Scheduling and staffing
difficulties move people from shift to shift as needed, resulting in spotty
participation in project-related efforts.
5. Use of management personnel to contribute to an ISO14001 implementation
team is not currently practical, since labor shortages have left three departments
(molding, assembly and packaging) temporarily without managers. Supervisors
are experiencing stress from working excessive hours, often including weekends.
Several other technical support positions are unfilled, thanks to regionally high
employment.
6. The facility has spent the last 10 years attending to environmental issues, and
much of the obvious improvements had been made prior to three years ago:
-15-
• Previously un-permitted wastewater treatment facility was permitted, operated
for 10 years, then abandoned in favor of connecting to a newly available
public sewer system.
• Wastewater pretreatment facilities were previously constructed to enable the
on-site wastewater treatment facility to function properly under the permit.
• Past NPDES permit was closed and re-issued as a stormwater only permit
before the EPA’s stormwater program was final. Consequently, the facility
has a fully regulated NPDES permit for only a stormwater discharge, causing
numerous sampling, analysis, and quality control burdens for little benefit.
• Hazardous wastes were previously shipped to scores of TSDFs at a total
annual cost of over $1million. Waste minimization, pollution prevention,
segregation, and competitive bidding of disposal and trucking contracts have
brought this down to 15% of that.
• The possible cost savings from ISO14001 implementation are still large, but
will require much greater systemic involvement. The low-hanging fruit had
already been picked.
• Our customers seem to pay lip service to ISO14000, yet are unwilling to
involve our input in product design, saying, in essence, “We know the product
is stupid, and that the design is overly complex, but that’s what Madison
Avenue says the customer wants, so try to make it in the most
environmentally responsible way.” For example, while everyone agrees with
Henry Ford’s sentiment, that it is most efficient to offer one color of vehicle,
the market now somehow supports over 50 shades of gray offered by Ford,
GM and DaimlerChrysler. Every time our paint lines have to change colors,
there is unnecessary waste. While automotive plastics were developed to
make vehicles lighter and more fuel efficient, the market drove the car
companies into building huge, wasteful SUVs. Government has not educated
the public about long-term goals and environmental responsibilities. The way
ISO14000 is going, it will be immune from having to do the dirty work too.
• Large, multinational companies seem to develop ISO14000 programs for the
advertising benefits. Our company, as a job shop, never deals with the
ultimate consumer, so our involvement has no intangible paybacks to tip the
scales. “
3.4 DES ISO 14000 Advisory Committee
As described in Section 2.3 of this report, a stakeholder group, the DES ISO 14000
Advisory Committee (“the Advisory Committee”), was assembled. The group met six
times between June 1998 and June 2000. Minutes of the meetings are included as
Appendix E. Discussions are summarized below, by topic.
3.4.1 EMS as a Concept
As a concept, systematic, proactive management of environmental affairs was quickly
recognized as desirable. Some concern was expressed that an organization would
publicize its EMS simply to show itself in a favorable light.
-16-
3.4.2 Registration
An organization can register its EMS to a standard; in the US this is almost always the
ISO 14001 standard. The organization contracts with an independent firm, a registrar,
to do this. The registrar has auditors under contract. These auditors examine the
organization’s documents and visit the organization’s site to interview personnel and
see the procedures in action. The auditors then make recommendations to the
registrar, which decides whether the organization’s EMS meets the standard.
Surveillance audits are conducted periodically to ensure that the EMS remains in place
and implemented.
This is an extremely brief summary of a process with its own complicated bureaucracy,
procedures and guidelines. Registrars may be accredited by national bodies; the US
accreditation body is the Registrar Accreditation Board in Milwaukee. There do not
appear to be any significant numbers of EMSs being registered by non-accredited
registrars.
The ISO 14001 standard itself is mute on the subject of registration. An organization
can register its EMS through a third-party audit to gain credibility either to itself or to
outside parties. Large manufacturers (Ford, GM, DaimlerChrysler) have instructed their
first-tier suppliers to have registered ISO 14001 EMSs. Others (IBM, Nokia), have
strongly suggested that their suppliers do the same. At this time, such market pressure
seems to be a major driver to third-party registration, although there are some reports
that firms register so that an outside party will keep coming in to ensure that the system
remains in place.
A firm can also self-certify, that is, make public statements that they have an ISO
14001-compliant EMS, without any third-party auditors. While this may be of
questionable value to parties outside the organization, an interesting point was raised in
Advisory Committee discussions: an EMS that is self-certified but includes reporting of
significant information to the public, may be of greater value to all external parties than a
third-party registered EMS. In this context, it should be understood that ISO 14001
requires very little in the way of communication with external parties, essentially only the
organization’s environmental policy is required to be available.
3.4.3 Relationship between EMS use and regulatory compliance
The hypothesis that using, or certifying to, an EMS guarantees regulatory compliance is
not true. The US standards-making body has stated that this is the case
10
, and
preliminary results from the EMS research and anecdotal evidence indicate that this is
the case.
10 United States Technical Advisory Group to ISO TC 207, 1999: 207TAG/SC1/99/N19 Z1/99/N8
-17-
Having said that, can we expect improved regulatory compliance from firms that use an
EMS? The answer to that seems to be yes.
In the ISO 14001 EMS, the organization has to have a process for knowing what laws it
is subject to
11
. Meeting this requirement alone is a major advance, since DES continues
to find that many individuals and organizations have no idea what environmental laws
they are subject to. EMSs tend to remove compliance from chance or from the
knowledge and inclinations of individuals who may be employed at any given time.
There was much discussion of what level of compliance can be expected from an
organization with a third-party certified EMS. A presentation to the Advisory Committee
by one registrar, NSAI Inc., helped address this issue. ISO 14001 requires that the
organization have an environmental policy that includes a commitment to comply with
relevant laws and regulations
12
. The auditor looks for objective evidence that this policy
has been implemented. US national guidance requires that the auditor obtain this
objective evidence, and not accept only “affirmative statements” from the organization
that they comply with laws and regulations
13
. Further, ISO 14001 requires that an
organization establish and maintain a procedure to evaluate their compliance
14
. The
auditor will look for objective evidence that this has been done.
Unfortunately, anecdotal reports, including conversations with many different registrars,
indicate that there are significant differences between the practices of different
registrars and auditors, significant enough to leave real doubt as to how much
assurance of improved compliance a registered EMS brings. NDEMS research does
indicate a decreased level of non-compliances among EMS firms. EPA has funded
separate research on the registration system by the National Academy of Public
Administration
15
. That report contains specific recommendations on improving the
registration system to gain consistency and clarity.
3.4.4 EMSs in Enforcement
Given that EMSs directly deal with the matter of how organizations manage their
environmental affairs, the enforcement branches of the environmental agencies have an
interest. This has several aspects.
First, in several cases, vigorous enforcement has had the effect of convincing
companies that they have to manage their environmental affairs more effectively, thus
driving them to implement EMSs.
11 ISO 14001:1996, Sec. 4.3.2
12 ibid, Sec. 4.2(c)
13 ANSI-RAB Criteria for Bodies Operating Registration of Environmental Management Systems, E 3.2
Rev. October 25, 2000
14 ISO 14001:1996, Sec. 4.5.1
15 National Academy of Public Administration, Third-Party Auditing of Environmental Management
Systems: US Registration Practices for ISO 14001, NAPA, May 2001, Washington, DC
-18-
An EMS might be considered evidence of an organization exercising due diligence or
reasonable care over their environmental liabilities. While this could be interpreted in
an enforcement context that “they should have known better”, it seems to be more usual
that having a system in place that would prevent recurrences acts as a mitigating factor
in computing penalties. DES and EPA enforcement policies provide for this second
interpretation – both agencies encourage self-reporting and remediation of violations
16,
17
. There are differences in the policies that each agency follows, but the goal remains
the same: to improve compliance at the facility and prevent recurrences.
Environmental enforcement personnel are coming to the understanding that many
violations are the direct result of ineffective management of environmental affairs, as
opposed to malicious behavior. Therefore, organizations are being tasked to develop
an EMS as part of enforcement settlements. DES has done this in one case, involving
the state transportation agency, and EPA has done so in numerous cases.
Significantly, the chief of DES’s RCRA enforcement section has reported
18
that
inspections at a facility with an EMS in place are significantly easier, especially noting
that records were easier to obtain at such a facility.
3.4.5 Recognizing and Rewarding Good Behavior
This was a major focus of discussions. Exploration of this topic was a grant
requirement.
Environmental agencies in the US have generally worked to modify environmental
behavior using regulatory tools, which act to punish those who do not behave
appropriately. This older tool has accomplished much, but it is only one tool. Incentives
or rewards for good behavior have been lacking. It should be understood that
withholding a punishment in not, strictly speaking, the same as an incentive.
The question to begin discussions was: Is it possible or desirable to offer positive
incentives to organizations that show environmental performance beyond what is
required in the law?
The short answer was yes. However, many detailed points emanated out from there.
• EMSs form a framework that allows a company to reliably achieve good or
superior environmental performance, and to document that fact. As noted, it
does not guarantee that performance.
• No one should be rewarded for simply complying with the law, but that is a
necessary first step.
16 EPA’s Audit policy:http://es.epa.gov/oeca/auditpol.html
17 DES Compliance Assurance Response Policy:http://www.des.state.nh.us/legal/carp/
18 verbal communication, 2000
-19-
• It was postulated that the existing framework of laws and regulations only
address about 30% of the true environmental impact we have. This has two
implications:
o ‘Beyond compliance’ performance in regulated areas only pushes that
30% of the envelope outward. However, this may be necessary or
desirable in certain circumstances.
o There is a need to encourage better environmental performance in non-
regulated areas. These non-regulated areas could include energy and
water use, quantity of waste generation (as opposed to the management
of that waste), sprawl, habitat loss, etc. It seems unlikely that these
problems will be addressed using traditional regulatory tools. Arguably,
many of these problems are not well suited to those tools. Further, it
seems unlikely that the environmental agencies’ resource levels will be
increased to the extent necessary to address all these problems using
regulatory tools. A new approach and new tools are needed.
A general agreement emerged that it would be desirable for DES to build a program that
would offer positive incentives to companies in exchange for documented superior
environmental performance. This would likely be a two-tier program. A lower tier would
simply recognize organizations with good compliance histories and EMSs to ensure
more reliable performance. A higher tier would be for the best performers, and could
take the form of a site-specific contract that would in effect trade commitments for
superior environmental performance for incentives from the agency. In general, the
intent is to recognize good performers and to allow an organization the ability to earn its
way into a more desirable relationship with the environmental agencies.
There was a great deal of discussion as to what incentives would be desirable. No
consensus was reached. A list of possibilities includes:
• Public Recognition
o For the higher performers this could include a site visit by the
Commissioner or even the Governor. Such a site visit is very highly
valued, as it brings the reward directly to the staff on the shop floor.
• Single point of contact within the agency
• Expedited permitting
• Self-permitting, or permit modification by notice
• Reduced or consolidated monitoring
• Reduced or consolidated reporting
• Lower inspection priority and/or frequency
• Acceptance of alternative technologies or methods
• Facility-wide permitting and/or emission limits
• Access to State warehouse, similar to that offered to non-profits
-20-
Other incentives were mentioned that seem to be outside of DES’s jurisdiction at this
time:
• Tax credits for environmentally-related equipment or purchases
• Income tax deductions for environmentally-related expenses
• Preferential access to government-backed loans
It seems most likely that no consensus was reached due, at least in part, to the
variability of what would be desirable to different organizations. Similarly, superior
environmental performance cannot be defined in a broad sense. Both performance and
incentive are specific to the location.
DES is currently working internally to develop this concept further to present a program
proposal. The State legislator on the Advisory Committee stated that, in her opinion,
such a proposal would get a good hearing at the State House.
While these discussions were taking place, EPA announced and started a similar
program, called National Performance Track
19.
EPA personnel explained their program
at Advisory Committee meetings. For DES purposes, it seems desirable to maximize
the agreement between state and federal programs, with a goal of reciprocity. It should
also be noted that several other states, notably Wisconsin, New Jersey and Oregon
have experience with such programs. Information on National Performance Track and
other states’ programs was distributed to the Advisory Committee.
During Advisory Committee discussions, it was asked that if such a program – offering
incentives in addition to punishments - represents a real change in how the agency
conducts its business, why has it raised so little public interest? After all, the public
seems to be clearly in favor of vigorous environmental protection. Two explanations
seem possible. First, that the concept is obviously desirable and therefore self-evident.
An Advisory Committee member offered a possible second explanation. In New
Hampshire, a culture of collaborative problem solving in environmental matters is long
standing. This implies that agency-company relations have been less adversarial, and
this new incentive concept arises, at least in part, out of a recognition that being
adversarial is not always the best way to address subtle and complicated environmental
issues and challenges.
3.5 Other DES EMS-Related Activities
During the project period, DES staff also took advantage of many opportunities within
New Hampshire to educate and promote the EMS concept and the ISO 14001 EMS in
particular, including:
• EMS sessions at the annual NH Pollution Prevention Conference.
19 Seehttp://www.epa.gov/performancetrack/
-21-
• “This is an EMS” presentations at local business-training sessions.
• Basic EMS training as part of the University of NH’s P2 Internship training
program.
• Support to the NH Small Business Development Center’s EMS training efforts.
• A presentation on how to assist small businesses build EMSs at a national Small
Business Assistance Program conference
20
.
• Responding to telephone requests for information.
• Development and promulgation of DES policy encouraging the use of EMS
21
.
• Advocacy with DES staff and management. Coordination with DES’s Pollution
Prevention Program was particularly good.
20 This presentation is posted athttp://www.epa.gov/ttn/sbap/conf99a.html. See the agenda for April 19,
1999.
21 Seehttp://www.des.state.nh.us/factsheets/co/co-11.htm
-22-
4. Results and Lessons Learned
4.1 General Lessons and Results
The first lesson learned is that systematic, proactive management of environmental
impacts through an EMS is better than reactive crisis-driven management.
Beyond that, perhaps the most significant lesson learned is that EMS development is a
significant undertaking. The time and effort necessary to accomplish this must not be
underestimated. Material resources, both time and money, are required, but non-
material resources are needed as well. The organization trying to implement an EMS
for the first time must have a clear understanding and acceptance of the plan-do-check-
act management style to successfully bring environmental management beyond single-
project status.
Having stated that, firms that implement EMS report anecdotally that the effort pays for
itself through cost savings. A payback period of one year is most commonly mentioned.
Most of the cost savings appear to be in non-regulated areas such as energy use. The
least economically favorable result known to DES is that the EMS effort was a break-
even proposition. Even in that case, the firm reported that the effort was worth it
because with the EMS in place, the firm had better relations with the environmental
agencies and with their neighbors.
DES’s program was originally set up to design and implement the participating firms’
EMSs over a six to eight month time frame. This was not accomplished, for various
reasons described in this report. It should be noted however, that a firm in New
Hampshire, not participating in the pilot study, reported to DES that it took them six
months to implement their EMS. This is a small electronics component manufacturer,
which was ISO 9000 certified when they started. They were motivated to do this when
their major customer indicated in writing that registration to ISO 14001 would determine
whether that customer would continue to use this manufacturer as a supplier. As a
manufacturer with a single product line, it may be assumed that their environmental
aspect and impact list was fairly short. The company was also relatively new, so the
existing management culture was less ingrained.
One interesting note is that in the course of DES’s EMS training it became necessary to
change the focus from helping the participating firms proceed to convincing them to stop
the planning efforts. That is, it was a challenge to convince them that what they had
was good enough to start with. A lesson here is that it is more important to start one’s
EMS and then improve it, rather than trying to build a perfect system and delay
implementation. Waiting for a perfect system essentially results in never getting started.
Whether or not a firm explicitly starts its EMS while practicing a plan-do-check-act
management style, the effort to implement an EMS involves hundreds, if not thousands,
-23-
of staff hours. Providing the research data, in addition to the effort needed to implement
the EMS, is a significant burden that has contributed to facilities dropping out of the
research program in all of the participating states.
Since 1997, awareness of EMSs and ISO 14001 has become much more common in
NH. DES’s activities, galvanized by this grant, have been important to achieving this
increased awareness.
4.2 Small Businesses
DES’s grant work plan focused on small businesses. Through the work of this project,
DES has learned that EMS development for small businesses is quite challenging. The
chart below illustrates the issues:
Pros Cons
Smaller structure makes communication Communication structure is sub-conscious
easier and un-documentable.
Less organizational inertia and history to No organization
impede change – more flexibility
Staff often empowered to make changes Staff resistant to the concept of
documented procedures
Decision makers easy to identify Decision makers often have no
‘management’ skills
No resources to devote to system
development
The last two issues in the “Con” column merit further discussion. The two key issues
seem to be the lack of resources in the small business environment and the fact that
small business managers/owners most often have no management training. A lack of
familiarity with the “Plan-Do-Check-Act” or TQM approach appears to be a fatal flaw for
anyone looking to develop an EMS.
Good intentions do not overcome this. A person with good intentions will address
individual issues well, but putting a system into place or comprehensively managing all
environmental impacts becomes a matter of chance. A sufficiently talented person may
be able to address all of an organization’s environmental concerns, but the matter is
then dependent on the individual.
Resources become more and more of an issue as an organization becomes smaller.
When the CEO is also the production manager, the human resources administrator, and
-24-
the health and safety officer, there is simply no time to step back to assess and build a
management system.
Specific parts of the ISO 14001 EMS which seem to be problematic for smaller
businesses are:
• Development of standard operating procedures for operational control
• Identification and ranking of environmental aspects and impacts
• Establishing a formal management review process
• Establishing a document control system
• Establishing communication procedures, for both external and internal
communication
Originally, it was anticipated that the DES project could produce a “small business EMS”
template. This proved to be infeasible. Other assistance tools are available though.
These include:
• Training consortiums, similar to the DES-offered training and training recently
offered by NH’s Small Business Development Center. Several small companies
band together to share training costs and collaborate on implementation.
• Assistance from non-traditional sources such as mentors. This would also
include customers, universities or non-profit groups.
• Sector-specific EMS templates. One example of a program developing these is
EPA’s Design for the Environment program
22
.
These could address the issue of resource limitations. To address insufficiency of
management skills, ways should be sought to provide management training to small
business owner/operators.
4.3 Specific Notes on New Hampshire Participating Firms
The first group of firms participating in the DES study did not have a starting point of
having an ISO 9000 quality management system in place. This meant that extra time
was needed to develop a comfort level with the concepts of systematic management.
Further, each of these firms was involved in the project on a strictly voluntary basis; i.e.,
they were doing it because it was the right thing to do. While laudable, this meant that
other issues would often take priority over EMS development.
22 Seehttp://www.epa.gov/opptintr/dfe/
-25-
Each of these three firms told DES that they would not have developed an EMS without
the state coming forward to assist them.
The company in this first group that progressed the furthest was the one with the
clearest commitment from upper management, and had staff from throughout the
organization involved in EMS development. The other two companies in this group
seldom involved more than one person in EMS development, and as a result
development was slow.
On the other hand, the two firms in the second group already had ISO-9000 systems in
place. Both are suppliers to the automotive industry. They joined DES’s project before
the major automotive manufacturers mandated EMS development by their suppliers, but
they were both aware enough of conditions to know that such a requirement was on the
horizon. Thus they had motivators that the other three lacked, and they had greater
knowledge of management systems. However, these two firms did not proceed at the
‘six-month’ pace originally envisioned. Reasons for this can be traced in corporate
management styles and in personnel turnover issues.
One firm’s corporate management style is heavily invested in lean manufacturing
techniques and the rigors of delivering products within a just-in-time inventory system.
Focus at the plant level is at the day-to-day level, even at the shift level, and focus on
broader management planning and execution is difficult to achieve. Support from
corporate management was questionable for much of the project period, and
involvement from other (i.e., outside of the environmental department) personnel has
been highly variable. However, the environmental manager who led the effort was able
to involve some people from other departments in the plant, and achieved some
success. Late in the project period, corporate management became involved to place
ISO 14001 EMSs at all plants within the corporation, and progress has quickened.
The other firm’s management style at the upper levels was entirely different from the
first one’s, and certainly appeared to be more progressive. However, the environmental
manager here did not seem to involve other people in EMS development. EMS
development appeared to be stalling after the point of ranking environmental impacts,
when that environmental manager left the firm. It took almost four months to fill the
position, and it is not known at present how EMS development will proceed. Alone of
the five participants, this firm had not completed any of the research data protocols (as
of mid-2002). They began working on the Baseline Protocol in the late spring of 2000
and on the EMS Design Protocol in the fall of 2000. DES’s project manager has met
with them four times to move the matter along, but the time required to fill out the
Protocol and personnel turnover have resulted in slow progress.
-26-
4.4 Summary of National Research Results
As noted, DES’s project is part of a larger research effort. Results of that research have
been published
23
. A brief summary of results to date, based on Baseline data
describing the firms that implement EMSs and EMS Design data describing the nature
of their EMSs, is included below:
1. EMSs are attractive to small businesses and government agencies, not just large
corporations.
2. Facilities implementing EMSs are not idiosyncratically “green” to begin with.
3. Pollution prevention plans make a difference to EMS practice.
4. Corporate policies matter.
5. Regulatory expectations are the strongest external drivers for EMS
implementation.
6. For businesses, internal drivers are more important than external pressures.
7. Market forces are also important, but in varied ways.
8. Government assistance matters, especially to government facilities and privately
owned (as opposed to publicly traded) companies.
9. Organizational culture is a powerful influence.
10. Environmental Health and Safety managers and staff almost always drive the
EMS design process.
11. Cross-functional work teams to address environmental management appear to
be an important benefit of EMS adoption.
12. External stakeholders are rarely invited into the EMS development process. The
ISO 14001 standard requires that the organization’s environmental policy (only)
be made available to outside parties. Significantly, one investigator found that
about 1/3 of a of sample firms with ISO registered EMSs refused to share their
environmental policy
24
.
23 This list is excerpted from the Executive Summary of Drivers, Designs, and Consequences of
Environmental Management Systems, Research Findings to Date From the National Database on
Environmental Management Systems March12, 2001, posted athttp://ndems.cas.unc.edu/
24 Barton, Alexandra (1999) An Analysis of ISO 14001 Environmental Policy Statements. Report
prepared for Barry Korb, USEPA, Washington, DC. Cited in Drivers, Designs, and Consequences…,
-27-
13. The scope of an EMS may or may not cover an entire facility.
14. There is great variation in how environmental activities, aspects and impacts are
categorized, described and ranked.
15. Ranking the significance of environmental impacts is based more often on
managerial judgment than on formal ranking processes. Regulatory compliance
is heavily weighted.
16. Positive impacts are rarely considered.
17. There is also great variations on how objectives and targets are set. The data to
date indicate that firms are setting short-term objectives and are not addressing
larger environmental issues such as design for the environment, life-cycle
analysis or product stewardship.
One possible public policy conclusion from these preliminary findings is that the
existence of an EMS is not sufficient to provide surety of acceptable environmental
performance, the content of the EMS must be examined as well.
March 12, 2001, cited above
-28-
5. SUMMARY
Through its participation in this project and through the outreach and networking that
DES staff has done, DES has learned that leading organizations have changed the way
they address their environmental affairs through the application of systematic
environmental management systems. These organizations use sophisticated systems
to manage their environmental affairs, both in regulated and un-regulated areas.
Anecdotally, these organizations report that this proactive environmental management
system produces net economic gains for them. This economic gain is seen as both cost
avoidance through better liability control, but also as explicit (and significant) cost
savings. They usually report these cost savings in areas that are not regulated, but are
still of concern to DES, such as energy use, water consumption and the quantity of
waste generated.
Now, leading companies do not view compliance with laws and regulations as a goal,
but as a given. They have learned that ‘deny, delay, and litigate’ as an environmental
management strategy is not effective. These leaders now view environmental
performance in a broader way, and understand that improving environmental
performance leads to improved economic performance. Some are vigorously promoting
full environmental sustainability.
In order for environmental agencies to take advantage of this change in business’
attitudes and encourage better environmental performance in the broadest possible
sense the environmental agencies can reach for these goals:
• Encourage better environmental performance in areas that current regulatory
programs have not succeeded at, which would include: sprawl, non-point source
water pollution, energy use, climate change, water consumption, habitat loss, etc.
• Explicitly shift limited government resources away from high-performing
organizations and toward those whose performance needs to be improved.
New programs are needed to accomplish these goals. This would involve recognizing
and rewarding good performers.
Goals for organizations that would participate in such a program would be to:
• Improve their economic performance while improving their environmental
performance.
• Achieve recognition as good performers
• Improve their relationships with the agencies and with their neighbors.
-29-
Many agencies have already developed incentive programs of various types intended
achieve these goals. Arizona, California, Colorado, Georgia, Idaho, Illinois, Indiana,
Maine, Michigan, New Jersey, New Mexico, North Carolina, Oregon, South Carolina,
Texas, Virginia, and Wisconsin are some of the states that have developed such
programs. USEPA has developed such a program
25
, the National Performance Track
program. In general, the intent is to recognize good performers and to allow an
organization the ability to earn its way into a more desirable relationship with the
environmental agencies. A relationship of collaborative problem solving with
appropriate trust is developed.
The original goal of having data from a number of organizations to answer the questions
related to whether, and how, an EMS affects an organization’s environmental
performance is only beginning to be reached. However, some results of the research
have been published, and the work is continuing. Even without problems in building the
database, the original two-year timeframe may have been too short to see any changes
in environmental performance attributable to EMSs.
However, even if data is only beginning to be available, DES has gained knowledge of
EMSs and their use by organizations. Because of that knowledge, DES has recognized
that organized, pro-active and comprehensive management of environmental impacts
through an EMS is desirable, and has a written policy encouraging the use of EMSs.
However, it appears if the EMS is intended to address public policy needs, the content
of each EMS has to be examined.
25 Information on the EPA’s program, and a summary of state programs, is athttp://www.epa.gov/performancetrack/
-30-
doc_509177780.pdf
DES proposed selecting firms at a single industrial park; assisting these firms in developing an EMS conforming to the ISO 14001 model; and, observing performance changes resulting from implementation of such systems.
RESEARCH INTO THE EFFECTIVENESS OF
ENVIRONMENTAL MANAGEMENT
SYSTEMS
FINAL
A report to
US Environmental Protection Agency, Region I, New England
August 2002
The New Hampshire Department of Environmental Services
ACKNOWLEDGEMENTS
Many people contributed to the work represented in this report. The New Hampshire
Department of Environmental Services would like to thank the DES ISO 14001 Advisory
Committee for contributing their time and expertise; the United States Environmental Protection
Agency for providing funding and support; the research staff at the University of North Carolina,
Chapel Hill and at the Environmental Law Institute for their hard work; W. Gary Wilson of
Harding-ESE for excellent professional assistance; and the Multi-State Working Group on EMSs
for inspiration, context and views at the national and international level.
Finally, our thanks go most especially to the companies that participated with us in this research
project for opening their doors and sharing how they address their environmental concerns.
NHDES-CO-01-03
RESEARCH INTO THE EFFECTIVENESS OF
ENVIRONMENTAL MANAGEMENT
SYSTEMS
FINAL
A report to
US Environmental Protection Agency, Region I, New England
Prepared by:
The New Hampshire Department of Environmental Services
6 Hazen Drive, P.O. Box 95
Concord, NH 03302-0095
August 2002
Printed on 100% Recycled, Process Chlorine Free Paper
ACKNOWLEDGEMENTS
EXECUTIVE SUMMARY 1
1. INTRODUCTION 4
2. PROJECT DESCRIPTION
2.1 Introduction 7
2.2 Training 8
2.3 DES ISO 14000 Advisory Committee 8
2.4 Multi-State Working Group on EMSs 9
3. PROJECT ACTIVITIES
3.1
3.2
3.3
3.4
3.5
Recruitment and retention of participants 11
Changes in expectations 12
Input from participant firms 14
DES Advisory Committee 16
Other DES EMS activities 21
4. RESULTS AND LESSONS LEARNED
4.1 General Lessons and Results 23
4.2 Small Businesses 24
4.3 Specific Notes on New Hampshire Participating Firms 25
4.4 Summary of National Research Results 27
5. SUMMARY 29
BIBLIOGRAPHY
APPENDICES
A. Grant app. work plan
B. Descriptions of the other states’ projects
C. NH’s EMS law & the required reports to the legislature
D. Description of EMS Implementation Training Program
E. Roster and Minutes of DES Advisory Committee meetings
F. Blank Cooperative Agreement Between DES & Participating Company
EXECUTIVE SUMMARY
In 1997, the New Hampshire Department of Environmental Services (DES)
responded to a grant request by EPA Office of Wastewater Management (OWM) which
was targeted on:
1. Encouraging the voluntary use Environmental Management Systems (EMSs);
2. Researching the effectiveness of EMS use; and
3. Examining the use of positive incentives by government for organizations that
use EMSs
DES proposed selecting firms at a single industrial park; assisting these firms in
developing an EMS conforming to the ISO 14001 model; and, observing performance
changes resulting from implementation of such systems. DES was partially successful
in reaching these goals. At the same time, the NH legislature required the DES
Commissioner to recognize the ISO 14001 standard and take actions to disseminate
information n the standard and determine whether certification to the standard ensured
compliance with existing legal or regulatory requirements of the DES. Further, a Mutli-
State Working Group (MSWG) working on the intersections of EMS use and public
policy was started at about the same time. DES participated in MSWG’s efforts.
DES recruited five companies at the Pease International Tradeport, in Portsmouth
and Newington, NH) who began training in the late spring of 1998 and later in that year
three additional companies located near the Tradeport. Training on EMS
implementation was provided to these companies through the middle of 2000.
An Advisory Committee was formed to disseminate information on EMSs and their
use and to assess possible government incentives for the use of EMSs that might be
considered.
Ten states, including NH, participated with other parties in establishing a MSWG
data protocol designed to measure the effectiveness of EMS application, an effort that
was also funded by OWM.
Of the firms that initially showed interest in participating, several dropped out during
the process. Early in the process, a warehousing firm, decided that their environmental
impacts were so minimal that developing an EMS would not be worthwhile. Later, a
powder coating firm dropped out since the manager was a) running two shifts; and b)
approaching management from a “fire fighting” approach. Another firm simply did not
participate and their Cooperative Agreement with DES was terminated. By the Fall of
1999, five firms were participating in the process.
-1-
A number of general conclusions can be drawn from the experience:
1. An organization intending to implement an EMS must accept the Plan-Do-Check-
Act management style; otherwise the EMS becomes a single project.
2. Financial payback on the effort of EMS implementation may be generally short
and, based on a limited sample, appears to be mostly related to non-regulated
areas such as energy use.
3. Small businesses typically lack the resources to undertake EMS development
and their owners/operators have limited management training.
4. The greatest progress among participants was in those with a clear and active
commitment from upper management and where staff throughout the
organization became involved in the EMS development process.
5. One of the participants experienced difficulties due to their focus on lean
manufacturing and just-in-time delivery requirements. Focus was at the shift
level and broader management planning and follow through was found difficult to
achieve.
EMSs, as a process, are still in an early evolutionary stage. As previously noted,
company size and management focus is critical with respect to putting an EMS into
place. Smaller companies, and wholly production-oriented companies, face greater
difficulties in establishing EMSs.
There are limitations in the most commonly used EMS standard, ISO 14001.
Information developed in the process is not necessarily made available to the public,
which is a key public policy issue. Details of how compliance with regulatory
requirements is assured through EMS use remain vague. The US system of
registering EMSs to the ISO 14001 standard contains a high degree of variability.
Nonetheless, DES encourages the development of EMSs as a means for
organizations to galvanize energies and direct them toward a higher level of
environmental and ultimately economic performance. There is a pay back, but as with
all pay back calculations, it must be measured in terms of the required investment and
in competition with other capital and operating expenses. The expected benefit in this
case is often the difficult to evaluate “avoided cost.” It is clear that each and every
company can not or will not be willing to make the considerable investment required to
establish an EMS.
This DES effort is part of a national research project referenced in the body of the
report and found athttp://ndems.cas.unc.edu/. Selected conclusions from the work are:
• Corporate policy matters and organizational culture are powerful influences on
how and to what extent an EMS progresses.
-2-
• Regulatory expectations are the strongest external influence on EMS
implementation, although for businesses internal drivers outweigh any external
drivers.
• External stakeholders are rarely invited into the EMS development process since
the ISO 14001 standard requires only that the organization’s policy be made
publicly available.
• The scope of an EMS may or may not cover an entire facility
• There is great variation in how environmental activities, aspects and impacts are
categorized, described and ranked.
EMSs are of growing significance and will continue to gain ground. Environmental
matters, even if limited to regulated matters, are sufficiently complex that an organized
system appears to be the only way to reliably achieve good performance. However,
motivation to have an EMS varies from organizations that adopt one as part of a
comprehensive approach to environmental affairs while others adopt it with reluctance
because of demand to do so by a dominant client or perhaps as a result of an
enforcement settlement. Given this breadth of motivation, results are uneven.
While DES recognizes that many jurisdictions have implemented programs to use
EMSs as a tool to achieve better environmental performance, resource constraints
indicate that no such new program can be started. DES for the foreseeable future
intends to use its existing assistance programs to encourage EMS use.
-3-
1. INTRODUCTION
Throughout the 1990's, the New Hampshire Department of Environmental Services
(DES) moved away from an enforcement-only approach to environmental protection by
encouraging activities aimed at achieving regulatory compliance and environmental
improvement through a combination of compliance assistance, pollution prevention
outreach, innovative targeting strategies, and a strong regulatory presence. This multi-
pronged and multi-tiered approach met many of DES’s environmental protection goals
as articulated in its Strategic Plan, Performance Partnership Agreements with the US
Environmental Protection Agency (EPA), and other documents.
By the late 1990's, companies in the United States and elsewhere had accumulated
significant experience with managing their environmental impacts and liabilities.
Businesses began to recognize the limitations and costs associated with the traditional
reactive and compliance-focused management of the environmental aspects of their
operations. Business leaders recognized that their environmental impacts often
resulted in significant uncontrolled and unquantified liabilities. Therefore, they began to
take proactive, systems-based approaches that moved their companies toward more
sustainable and cost-effective ways of doing business, using pollution prevention
methods and integrating environmental concerns more fully into the corporate structure
and operations. They realized that better performance in environmental areas could be
used to drive better performance in the marketplace. To achieve this performance, a
business management tool was developed through standards-making bodies to help
business effectively handle their environmental affairs - the Environmental Management
System, or EMS.
An EMS is a comprehensive, organized and documented management system aimed at
achieving full control over, and maximum performance in, an organization’s
environmental affairs. In the early 1990's, several EMS standards were promulgated by
national standard making bodies. These standards did not agree with each other in all
details. To address the conflicts between the national standards, and seeing a business
opportunity, the International Organization for Standardization (ISO) in Geneva,
Switzerland began the process of making a consensus international standard for
environmental management systems. Their EMS standard, ISO 14001, was finalized in
September 1996. While DES acknowledges that other EMS standards can be used,
this report is written around the ISO 14001 standard, as it is the standard which is most
used in the US at this time.
Environmental agencies in the United States, especially the Environmental Protection
Agency (EPA), followed this standards development process closely. EPA participated
in the process of creating the ISO 14001 standard. Other agencies at the state level
have become more and more aware of the private sector’s move toward use of EMSs,
as they have seen the behavior of at least some of their regulated parties change.
-4-
The tools available to environmental agencies tend to reflect the times in which the
specific programs were established. Through the 1970s and 1980s, and into the 1990s,
environmental concerns were often not effectively addressed by businesses, which led
to relationships between the private sector and the environmental/regulatory agencies
that were adversarial, and costly in terms of dollars and time spent. A command-and-
control system arose. The agencies relied almost solely on strict regulation and
litigation to achieve the goals set by their overseeing legislatures.
The US framework of laws and regulations is focused on single issues or media – water
quality, air quality, hazardous waste management, etc. This framework is reflected in
organizations, responsibilities and budgets, which can cause administrative problems in
addressing issues that cross media/legislative boundaries. Problems associated with
the gasoline additive MTBE are a recent example: a well-meant and successful attempt
to solve air quality problems inadvertently led to water contamination problems. With a
media-specific framework built into the structure of most environmental agencies, a
holistic systems approach is often difficult to achieve. The private sector is less
handicapped in this sense, they must deal with all their environmental issues or face
consequences, and so they are becoming more systematic in their approach.
The older, single-media, “command-and-control” style of environmental protection has
had many successes and many important environmental gains have been made.
However, the newer environmental challenges that the agencies and the public they
serve face at the turn of the century require new problem-solving approaches. The old
way of doing business may be ineffective in making future progress.
In theory, a facility that adopts and effectively implements an ISO 14001 EMS should, in
the long run, comply with all environmental regulations without the threat of enforcement
since the standard requires procedures for identifying and complying with regulations.
Further, a comprehensive EMS may drive better environmental performance in areas
that are not regulated. While the environmental agencies want to encourage
performance beyond the regulatory minimums, and in non-regulated areas, they have
had difficulty finding the appropriate means to do so.
A change in the private sector toward better and more comprehensive environmental
performance beyond the regulatory requirements raises the possibility of the agencies
being able to re-focus their efforts. The hope is that if the agencies can identify firms
with EMSs in place as better performers, resources could then be re-prioritized away
from the high-performing facilities and toward facilities that require closer scrutiny.
At this time, the environmental agencies do not have the resources to oversee all the
environmental impacts of all regulated parties using the traditional tools. Since it does
not appear likely that agency budgets and staff will grow to the extent necessary, to
triple perhaps, other means are sought. Further, DES and other agencies have learned
over the years that the confrontation implicit in command-and-control regulation tends to
raise its own opposition. These agencies are learning that an assistance-first
-5-
philosophy will often get more results at lower cost to the agency, and thus to the public,
while leaving the enforcement option available to use when needed.
In basic terms, the environmental regulatory system (loosely defined) is a system
essentially designed to modify business behaviors to avoid negative impacts to public
health and the environment, and to avoid costly clean-ups in the future. Any effective
behavior modification system has rewards and punishments. However, environmental
command-and-control regulation (as used in the United States) has been a behavior
modification system designed mostly with punishments in mind, with very few positive
rewards. It must be understood in this context that withholding a punishment is
fundamentally different from offering a positive reward. This has led to a scarcity of
tools for the agencies to use to address different problems. Policy-research
institutions
1, 2
and policy-making branches of the government
3
have spent significant
resources over the last five to ten years addressing this issue.
Thus, there are several interrelated issues that can be addressed by focusing on EMSs
as a tool:
• The need to manage environmental problems previously not addressed to have an
impact beyond the current set of regulations and regulated areas;
• The desire to obtain environmental performance beyond the regulatory minimums;
• The perception that the command-and-control regulatory system may not be able to
adequately address certain problems not contemplated by the existing regulatory
system, at least not as the only tool available for all parties;
• The agencies’ resource limitations; and,
• A desire to use a systems approach to pull all environmental management efforts
into a cohesive and holistic package, while at the same time there is a new
systematic management tool for environmental affairs.
All these factors drive an intense interest by environmental agencies in the role of EMSs
in protecting public health and the environment.
However, there is a significant missing link. This missing link is real data or knowledge
on the performance of firms who use EMSs. Is it really better than the old way? In what
way is it better? Or is it just a green veneer on old practices? This report describes
DES’s effort, one of a set of efforts that various states have begun, to find out.
1 Especially see: Environment.Gov: Transforming Environmental Protection for the 21
st
Century,
November 2000, National Academy of Public Administration, Washington, DC
2 Managing a Better Environment: Opportunities and Obstacles for ISO 14001 in Public Policy and
Commerce March 2000, J. Morrison et al, Pacific Institute, Oakland, CA
3 Especially see: Aiming for Excellence: Actions to Encourage Stewardship and Accelerate
Environmental Progress, July 1999, USEPA
-6-
2. PROJECT DESCRIPTION
2.1 Introduction
In January 1997, the Office of Wastewater Management (OWM) at EPA Headquarters
published a Federal Register notice requesting competitive grant applications from
states for the purposes of encouraging the voluntary use of EMSs, especially the ISO
14001 EMS; researching the effectiveness of EMS use; and examining the uses of
positive incentives by environmental agencies for companies that use EMSs. DES
responded with an application, and in April 1997 EPA notified DES that they had been
accepted for funding. DES’s grant application work plan is attached as Appendix A.
DES’s proposal was to select firms at a single industrial park, assist those firms in
developing an ISO 14001 EMS, and observe what performance changes resulted from
implementation of the system.
During the same time frame, two other groups took actions affecting this proposed work.
The NH Legislature amended the statute describing the duties of the DES
Commissioner, requiring him to recognize the ISO 14001 standard and to take certain
actions to disseminate information on the standard, and perhaps most importantly, to
“Determine… whether ISO 14000 certification of certain entities ensures adequate
compliance with existing standards or requirements established by the department.”
4
The work conducted under this grant allowed DES to fulfill those requirements. The
actual legislation is in Appendix C of this report.
Also, a Multi-State Working Group on EMSs (MSWG)
5
began a major research effort to
determine the effectiveness of EMS, looking for changes in performance in areas of
rates of compliance with regulations, their existing management systems, environmental
performance, pollution prevention activities, consideration and involvement of
stakeholders in environmental decisions, and economic performance (costs and
benefits). This effort was made in cooperation with the same EPA office that solicited
the grant applications mentioned above. Most of the successful applicants (but not DES
at that time) were MSWG members. The data protocols developed by MSWG became
the research metrics for all of the states receiving EPA grants.
During the project period, the project managers of the various state projects met twice a
year with EPA and research staff to compare notes and progress and to address issues
that had arisen. DES was represented at all these meetings.
4 Chapter 295, Laws of 1997
5 See http:www.mswg.org
-7-
2.2 Training
DES competitively procured the services of a consulting trainer to provide assistance to
participating companies. Environmental Science & Engineering, Inc. (“ESE”)
6
of
Nashua, NH was selected.
DES recruited companies at the Pease International Tradeport (“Tradeport”, the former
Pease Air Force Base), and five companies began training in the late spring of 1998. In
late 1998 and early 1999, DES recruited three additional companies in the same region
of the state as the Tradeport.
The training was designed such that part of the ISO 14001 standard was introduced to
participants at a meeting held at DES offices at the Tradeport. The participants then
returned to their workplaces and either performed the appropriate planning task, or
implemented the appropriate part of the system. Additional assistance at each
company’s location was made available. This incremental approach, with homework, is
common in EMS implementation training. It is intended to enhance each company
taking ownership of the EMS. Training sessions continued through the spring of 2000.
The results of the training are outlined in Chapter 3. A description of the base training
program, from the contract documents, is in Appendix D.
A second type of training was also offered. Eight-hour seminars were offered to give an
introduction to the EMS concept, and specifically to ISO 14001, to DES staff and to
members of the DES ISO 14000 Advisory Committee (see sec. 2.3). About 15% of
DES staff attended, as did a few staff from another state agency, and almost all of the
membership of the Advisory Committee attended.
This second training program was very valuable by increasing awareness of the EMS
concept among state staff and the various groups represented on the Advisory
Committee.
2.3 DES ISO 14001 Advisory Committee
Two of the original grant requirements were to 1) test acceptance of the EMS concept in
the stakeholder community; and 2) assess possible regulatory incentives and flexibility
that might be appropriate for organizations that use EMSs. A stakeholder committee,
called the DES ISO 14000 Advisory Committee (“the Advisory Committee”) was
recruited to help address these issues by providing outside opinions and oversight, as
well as to keep interested parties informed as to what DES was doing. The Advisory
Committee included representatives from the business, academic, and environmental
communities, and government bodies in NH. A full Advisory Committee roster is
included in Appendix E.
6 This firm changed ownership twice during the project. For some of the time ESE was known as QST
Environmental, at a later time QST reverted to the ESE name.
-8-
So that discussions could proceed from a common level of knowledge, and to spread
information on EMS use further, an eight-hour seminar on EMSs was made available in
the Spring of 1998 to members of the Advisory Committee. Some members attended a
daytime session at DES’s office, which was primarily intended for DES staff. Other
members attended evening sessions, which were made available specifically for those
who could not devote a full workday to the other seminar.
The first meeting of the Advisory Committee was in April 1998. The Advisory
Committee met six times, with the last meeting to date in June 2000. The discussions
are summarized in Chapter 3; the minutes of the Advisory Committee meetings are in
Appendix E.
At the fifth meeting, in November 1999, the Advisory Committee requested that DES
develop a program that would offer incentives to companies that show they are
managing their environmental affairs effectively, using the presence of an EMS as a key
part of the evidence that the company is doing so. This concept is discussed further in
various sections of this report.
2.4 The Multi-State Working Group on EMSs
In 1996, a Multi-State Working Group on Environmental Management Systems (MSWG)
was formed to provide a forum for federal and state agencies, non-governmental
organizations, and representatives from industry and academia to examine the public
policy implications of environmental management systems, particularly ISO 14001.
MSWG has continued to meet quarterly to discuss issues related to environmental
management systems and ISO 14001 as well as the use of EMSs in innovative
regulatory programs. MSWG also holds larger annual national workshops on these
topics.
As noted in section 2.1, in 1997 MSWG established the beginnings of a data protocol to
measure the effectiveness of EMS use. OWM granted money to a consortium of the
Environmental Law Institute of Washington, DC, and the University of North Carolina at
Chapel Hill to develop data protocols, house the resulting database, and prepare
reports to the public.
After receiving its own grant, DES was made aware of this process. OWM proposed
that all ten participating states use the MSWG data protocols, on the theory that a
national-scale database of 50 to 100 firms, overseen by a major university, would yield
much more useful data than smaller separate state-specific databases. This database
is now referred to as the “National Database on Environmental Management Systems”
(NDEMS). DES agreed to this approach, and participated in the process of finalizing
the data protocols. DES has since become a full member of MSWG.
NDEMS is a public database. As such, the information is made available to the public
7
.
7 Seehttp://ndems.cas.unc.edu/
-9-
However, the firms participating in the various state projects are assisting the agencies’
research, and the project managers (and the participating firms) felt strongly that the
participating firms should be protected from nuisance attention brought about solely by
virtue of their participation in the projects. Also, while information on how incidents of
non-compliance are found and addressed is key to finding out how EMSs work, this
information which is often considered sensitive by the firms. The project manager group
and the research staff expended a great deal of time and effort resolving the conflict
inherent in this matter. It was agreed that the various agencies would address incidents
involving substantive environmental threat or harm themselves as if there was no
special relationship with the participating firm, but that the research staff would not
become involved in this. Only information aggregated so that incidents should not be
traceable to individual facilities is given to the public through NDEMS.
It should be understood however, that in most cases, and certainly in DES’s case, each
participating firm is in closer contact than usual with the agencies involved because of
their participation. None of the states have waived legal requirements for participating
firms.
NDEMS uses three different data protocols. The first, and longest one is the Baseline
Protocol, which describes the company and its environmental performance over a three-
year period, to establish a starting point. Using a three-year baseline period also at
least partly addresses the issue of study controls. The second is the EMS Design
Protocol, which describes how the company designed and implemented its specific
EMS. The third is the Update Protocol, in which the company is asked what has
changed in the time since the last protocol was submitted. The first two data protocols
are generic, and are available on the web athttp://ndems.cas.unc.edu/ . The Update
Protocols are customized, but a base version is available at the website. The facility is
shown the data from previous submittals, and they are asked to make changes as
appropriate.
As of the summer of 2002, results from more than 60 organizations’ Baseline Protocols,
more than 50 EMS Design Protocols, and almost 40 Update Protocols had been
completed through the QA process. Research papers are being written. Papers
completed can be found at the website mentioned above.
It should also be mentioned that vigorous attempts were made to recruit control facilities
from outside of the state projects. This effort did not bear fruit, partly due to budget
restraints with the research staff. Facilities in the control group, by virtue of their
‘control’ status, could not use the substantial in-kind assistance of the state project
managers. Efforts to get information from companies with EMSs, but who were not in
state programs, bogged down. Efforts to get environmental performance information
from companies that do not have EMSs was unsuccessful – in hindsight it seems
obvious that companies with no EMSs would not manage environmental information.
-10-
3. PROJECT ACTIVITIES
3.1 Recruitment and Retention of Participants
Beginning in late 1997, DES’s project manager began meeting with firms located at the
Pease International Tradeport, which is a growing industrial development at the former
Pease Air Force Base, near Portsmouth on New Hampshire’s seacoast. The purpose
of the meetings was to both educate the firms on the EMS concept and to recruit
participation in DES’s pilot project. Seven firms showed an active interest in
participating in the DES project. Five of these seven firms ultimately decided to
participate, and they signed Cooperative Agreements with DES describing their
participation in the project. A sample Cooperative Agreement is attached as Appendix
F.
The first training workshop for the participating facilities was held in May 1998. This
workshop covered the EMS concept in general, ISO 14001 more specifically, and
focused on development of a company’s environmental policy per ISO 14001 Section
4.2. Following this workshop, one participant dropped out of the project, having decided
that their environmental impacts were so minimal that developing an EMS would not be
worth the effort.
In this particular case, a warehouse operation, the person who convinced corporate
management that they should get into the EMS project was not the same person who
was sent to the first workshop. This new person was instructed at the last minute to
attend the training, and he did not have any orientation to the EMS process. He
recommended to corporate management that they drop out because their warehouse
had no environmental impact. While the environmental impacts of a small warehouse
are not the same as a manufacturer, the last minute personnel change was likely a
cause of this firm’s decision to drop out at this point. A lack of acceptance of the
significance of environmental concerns was also a factor. During the recruitment phase
of the project this was a concern mentioned several times by this firm. In the event, one
person’s belief in the importance of environmental affairs was insufficient to keep the
company in the project
Later in 1998, a second firm dropped out. This firm was a powder-coating firm
employing about 25 people. They work on a job-shop basis, on two shifts. The
manager of the firm, who was attending the EMS training sessions, decided that he
could not handle the expanded workload of EMS development in addition to all his other
duties.
In this instance, the manager understood that his shop had environmental impacts, and
he sincerely wanted to address them. However, his management style was personal
and hands-on. He “fought fires” as they arose; he tried to run both production shifts
personally. While he had success running his business, he did not have an
-11-
understanding or acceptance of the management methods generally referred to as
“Plan-Do-Check-Act” or TQM, which aim to produce continuous improvement. It seems
that this hands-on management style, with little delegation of authority, is not conducive
to developing an EMS.
In late 1998, DES recruited additional firms to participate in the project. A meeting with
the Pease Tradeport tenant group showed that no more firms at the Tradeport were
likely to participate, so recruitment was widened to the entire New Hampshire seacoast
area. Several firms expressed interest, and three signed Cooperative Agreements with
DES. These three firms, all ISO 9000 certified manufacturers, started EMS training in
the spring of 1999.
One of these three new firms failed to attend workshops and showed no interest in
participating in the project, so DES terminated that Cooperative Agreement. Therefore,
by the fall of 1999, five firms were participating. They were:
First group (start early 1998):
1. NH Air National Guard, 157
th
Air Refueling Wing (NHANG), a military unit still
operating on the former air base. Their EMS covers all NHANG operations.
2. Pease Development Authority (PDA), the landlord for Pease International
Tradeport. Airport and maintenance activities are covered under their EMS.
3. Fenris Technology Research, Inc. (Fenris), a very small firm, operating at
Pease, engaged in research and development of analytical laboratory equipment.
Their EMS covers all operations.
Second group (start early 1999):
4. Venture Holding Corporation (Venture). An ISO-9000 certified manufacturer,
producing plastic molded body parts for the automotive industry. Their EMS
covers all operations.
5. Foss Manufacturing Company, Inc. (Foss). An ISO-9000 certified
manufacturer, making non-woven fabric products. The automotive industry is a
major customer. Their EMS covers all operations.
By the fall of 1999, each group was at a similar stage of EMS development, so training
for the two groups was merged.
3.2 Changes in Expectations
When DES’s project was conceived, there were some early expectations that later
proved unrealistic. The first of these was the expectation that the project could result in
-12-
a generic template usable by small businesses in general to develop an EMS. This
turned out to be a mis-guided idea. The ISO 14001 standard itself is the template.
Beyond that, the vast differences between different business sectors make development
of a small-business-specific EMS template impossible. However, sector-specific EMS
templates seem quite possible, and some of these are being developed by others.
8
Another unrealistic expectation had to do with the pace of EMS development. The
original concept was to move the firms through their training in a six to seven month
time frame, thus leaving more time in the (originally conceived) two-year project to
observe changes in the firms’ environmental performance. All the firms, but especially
the first three firms, ended up moving through the process at a rate much slower than
envisioned.
One of the early tasks in EMS implementation is analysis of a firm’s products, services
and activities to determine how each of these interact with and impact on the
environment, and to rank the impacts. This analysis is one of the key value-added
items of an EMS, bringing an understanding of a firm’s operations that was not possible
before the analysis. However, the concept is new to most people, the nature of the
analysis is not specified in the standard, and getting started can take some effort. Also,
once started, most often the effort is becomes surprisingly absorbing, and all of the
firms involved in DES’s project spent much effort in doing the best possible analysis of
their environmental impacts and ranking them in the best possible way. While this may
have added some value, it cost time, and was a key factor in the training schedule
becoming protracted.
More detail on the behavioral aspects of each participating firm is provided in Chapter 4
of this report.
Another factor in the delays was the non-enforceable nature of the Cooperative
Agreements. The firms involved are assisting DES in doing research on EMSs, and
there were no sanctions for not progressing as anticipated. DES could not force the
firms to go faster than they were willing to go. However, it may be that this delay did not
impede the overall research, because of the next mistaken expectation, which relates to
the nature of a national research effort.
As noted in Section 2.4, EMS projects in ten different states are sending common data
to NDEMS. Data protocol development took longer than expected, in part due to the
process of getting ten states, a federal agency, a university and an environmental group
to agree on both strategy and details; and also in part due to personnel turnover at the
University of North Carolina. The EMS Design Protocol was not available until mid-
1999, and the Update Protocol was not available until early 2001.
In addition to issues related to protocol development, the data protocols themselves,
especially the Baseline Protocol, contain very large quantities of data. Therefore review
8 e.g., EPA’s Design for the Environment Program,http://www.epa.gov/opptintr/dfe/pwb/case_studies/case8/
-13-
and synthesis of the incoming data protocols required an unexpected amount of staff
processing time at UNC and ELI. Quality control reviews of incoming data protocols,
and making certain that each company was comfortable with the data, added time to the
project. Also, it turned out that assembling the computer database to house and use
the data was a major unanticipated task and UNC had to find additional skilled staff to
build the actual database structures.
As of mid-2002, NDEMS is now able to report on changes in companies’ environmental
performance as a result of EMS use. This is three years later than originally
anticipated.
In part, these delays can be attributed to the newness of the EMS concept. In early
1997, the environmental agencies were very interested, as they still are, in determining
out what actual environmental performance an EMS brings to a company. This turned
out to be a far more complex question to address than it first appeared, so the actual
effort needed to address the issue was greater than expected.
3.3 Input From Participating Companies
After several requests, only two of the participating companies provided comment on
the project . These comments focused on the training program by Environmental
Science & Engineering, Inc. The comments are provided verbatim
9
here:
NH Air National Guard:
“ --Overall methodology and instruction were excellent. Instructor was very
good (especially all the review sessions Gary had to do to get our minds back to
where we had left off)
--Gary (Wilson) was a very effective teacher, and we appreciated that he
came to the Guard to provide specific training to all our Supervisors at the
inception of the program.
--Handout materials were very good and the ISO book (ISO 14000 Answer
Book, Sasseville, Wilson & Lawson, John Wiley & Sons, 1997) helped refresh
our memories when we needed it.
--We believe it was worthwhile for us to go through the process to look at
ourselves. It was an eye opener as to how our organization in all its activities
affects the environment.
9 Only a very few grammatical corrections were made to these comments, none of which change the
meaning.
-14-
--We believe that the ISO process, if we were further along, would have
helped us in our EPA multimedia inspection in such areas as awareness of
potential problems.
--ISO 14000 is clearly a way to improve our regulatory compliance...it's just
finding the time to make it a priority.
Finally, we would be willing to share our experience with other companies who
may be considering going through the process to give them a quick view as to
our experience.
(ed.: Since these comments were provided in June 2000, Air National Guard
personnel made a presentation at an MSWG meeting on how they are
implementing their EMS.)
Venture Industries:
“This facility expected to be able to participate in the series of workshops more fully
than it did. Here are the reasons (excuses) as to why the workshops were not as
helpful as expected:
1. The process as presented proved too theoretical for us. The identification of
environmental aspects and ranking of impacts was performed by a consultant
(another consultant, hired by Venture corporate headquarters), and not by plant
employees because the procedure was too academic, the criteria too subjective,
and the product was too irrelevant to the average employee.
2. The plant has a high turnover in both production and management personnel,
consequently, there is less continuity in our staffing than would be expected.
3. The corporate culture has embraced “continuous improvement” which often
means “constant change”.
4. The facility is production driven, and while there have been attempts to empower
the hourly production employees to manage aspects of their work, the facility is
not staffed to the point where employees can be relieved from their production
line duties regularly enough to attend project training or implementation
meetings. These production demands prohibit team members from spending
time to work on project assignments between meetings. Scheduling and staffing
difficulties move people from shift to shift as needed, resulting in spotty
participation in project-related efforts.
5. Use of management personnel to contribute to an ISO14001 implementation
team is not currently practical, since labor shortages have left three departments
(molding, assembly and packaging) temporarily without managers. Supervisors
are experiencing stress from working excessive hours, often including weekends.
Several other technical support positions are unfilled, thanks to regionally high
employment.
6. The facility has spent the last 10 years attending to environmental issues, and
much of the obvious improvements had been made prior to three years ago:
-15-
• Previously un-permitted wastewater treatment facility was permitted, operated
for 10 years, then abandoned in favor of connecting to a newly available
public sewer system.
• Wastewater pretreatment facilities were previously constructed to enable the
on-site wastewater treatment facility to function properly under the permit.
• Past NPDES permit was closed and re-issued as a stormwater only permit
before the EPA’s stormwater program was final. Consequently, the facility
has a fully regulated NPDES permit for only a stormwater discharge, causing
numerous sampling, analysis, and quality control burdens for little benefit.
• Hazardous wastes were previously shipped to scores of TSDFs at a total
annual cost of over $1million. Waste minimization, pollution prevention,
segregation, and competitive bidding of disposal and trucking contracts have
brought this down to 15% of that.
• The possible cost savings from ISO14001 implementation are still large, but
will require much greater systemic involvement. The low-hanging fruit had
already been picked.
• Our customers seem to pay lip service to ISO14000, yet are unwilling to
involve our input in product design, saying, in essence, “We know the product
is stupid, and that the design is overly complex, but that’s what Madison
Avenue says the customer wants, so try to make it in the most
environmentally responsible way.” For example, while everyone agrees with
Henry Ford’s sentiment, that it is most efficient to offer one color of vehicle,
the market now somehow supports over 50 shades of gray offered by Ford,
GM and DaimlerChrysler. Every time our paint lines have to change colors,
there is unnecessary waste. While automotive plastics were developed to
make vehicles lighter and more fuel efficient, the market drove the car
companies into building huge, wasteful SUVs. Government has not educated
the public about long-term goals and environmental responsibilities. The way
ISO14000 is going, it will be immune from having to do the dirty work too.
• Large, multinational companies seem to develop ISO14000 programs for the
advertising benefits. Our company, as a job shop, never deals with the
ultimate consumer, so our involvement has no intangible paybacks to tip the
scales. “
3.4 DES ISO 14000 Advisory Committee
As described in Section 2.3 of this report, a stakeholder group, the DES ISO 14000
Advisory Committee (“the Advisory Committee”), was assembled. The group met six
times between June 1998 and June 2000. Minutes of the meetings are included as
Appendix E. Discussions are summarized below, by topic.
3.4.1 EMS as a Concept
As a concept, systematic, proactive management of environmental affairs was quickly
recognized as desirable. Some concern was expressed that an organization would
publicize its EMS simply to show itself in a favorable light.
-16-
3.4.2 Registration
An organization can register its EMS to a standard; in the US this is almost always the
ISO 14001 standard. The organization contracts with an independent firm, a registrar,
to do this. The registrar has auditors under contract. These auditors examine the
organization’s documents and visit the organization’s site to interview personnel and
see the procedures in action. The auditors then make recommendations to the
registrar, which decides whether the organization’s EMS meets the standard.
Surveillance audits are conducted periodically to ensure that the EMS remains in place
and implemented.
This is an extremely brief summary of a process with its own complicated bureaucracy,
procedures and guidelines. Registrars may be accredited by national bodies; the US
accreditation body is the Registrar Accreditation Board in Milwaukee. There do not
appear to be any significant numbers of EMSs being registered by non-accredited
registrars.
The ISO 14001 standard itself is mute on the subject of registration. An organization
can register its EMS through a third-party audit to gain credibility either to itself or to
outside parties. Large manufacturers (Ford, GM, DaimlerChrysler) have instructed their
first-tier suppliers to have registered ISO 14001 EMSs. Others (IBM, Nokia), have
strongly suggested that their suppliers do the same. At this time, such market pressure
seems to be a major driver to third-party registration, although there are some reports
that firms register so that an outside party will keep coming in to ensure that the system
remains in place.
A firm can also self-certify, that is, make public statements that they have an ISO
14001-compliant EMS, without any third-party auditors. While this may be of
questionable value to parties outside the organization, an interesting point was raised in
Advisory Committee discussions: an EMS that is self-certified but includes reporting of
significant information to the public, may be of greater value to all external parties than a
third-party registered EMS. In this context, it should be understood that ISO 14001
requires very little in the way of communication with external parties, essentially only the
organization’s environmental policy is required to be available.
3.4.3 Relationship between EMS use and regulatory compliance
The hypothesis that using, or certifying to, an EMS guarantees regulatory compliance is
not true. The US standards-making body has stated that this is the case
10
, and
preliminary results from the EMS research and anecdotal evidence indicate that this is
the case.
10 United States Technical Advisory Group to ISO TC 207, 1999: 207TAG/SC1/99/N19 Z1/99/N8
-17-
Having said that, can we expect improved regulatory compliance from firms that use an
EMS? The answer to that seems to be yes.
In the ISO 14001 EMS, the organization has to have a process for knowing what laws it
is subject to
11
. Meeting this requirement alone is a major advance, since DES continues
to find that many individuals and organizations have no idea what environmental laws
they are subject to. EMSs tend to remove compliance from chance or from the
knowledge and inclinations of individuals who may be employed at any given time.
There was much discussion of what level of compliance can be expected from an
organization with a third-party certified EMS. A presentation to the Advisory Committee
by one registrar, NSAI Inc., helped address this issue. ISO 14001 requires that the
organization have an environmental policy that includes a commitment to comply with
relevant laws and regulations
12
. The auditor looks for objective evidence that this policy
has been implemented. US national guidance requires that the auditor obtain this
objective evidence, and not accept only “affirmative statements” from the organization
that they comply with laws and regulations
13
. Further, ISO 14001 requires that an
organization establish and maintain a procedure to evaluate their compliance
14
. The
auditor will look for objective evidence that this has been done.
Unfortunately, anecdotal reports, including conversations with many different registrars,
indicate that there are significant differences between the practices of different
registrars and auditors, significant enough to leave real doubt as to how much
assurance of improved compliance a registered EMS brings. NDEMS research does
indicate a decreased level of non-compliances among EMS firms. EPA has funded
separate research on the registration system by the National Academy of Public
Administration
15
. That report contains specific recommendations on improving the
registration system to gain consistency and clarity.
3.4.4 EMSs in Enforcement
Given that EMSs directly deal with the matter of how organizations manage their
environmental affairs, the enforcement branches of the environmental agencies have an
interest. This has several aspects.
First, in several cases, vigorous enforcement has had the effect of convincing
companies that they have to manage their environmental affairs more effectively, thus
driving them to implement EMSs.
11 ISO 14001:1996, Sec. 4.3.2
12 ibid, Sec. 4.2(c)
13 ANSI-RAB Criteria for Bodies Operating Registration of Environmental Management Systems, E 3.2
Rev. October 25, 2000
14 ISO 14001:1996, Sec. 4.5.1
15 National Academy of Public Administration, Third-Party Auditing of Environmental Management
Systems: US Registration Practices for ISO 14001, NAPA, May 2001, Washington, DC
-18-
An EMS might be considered evidence of an organization exercising due diligence or
reasonable care over their environmental liabilities. While this could be interpreted in
an enforcement context that “they should have known better”, it seems to be more usual
that having a system in place that would prevent recurrences acts as a mitigating factor
in computing penalties. DES and EPA enforcement policies provide for this second
interpretation – both agencies encourage self-reporting and remediation of violations
16,
17
. There are differences in the policies that each agency follows, but the goal remains
the same: to improve compliance at the facility and prevent recurrences.
Environmental enforcement personnel are coming to the understanding that many
violations are the direct result of ineffective management of environmental affairs, as
opposed to malicious behavior. Therefore, organizations are being tasked to develop
an EMS as part of enforcement settlements. DES has done this in one case, involving
the state transportation agency, and EPA has done so in numerous cases.
Significantly, the chief of DES’s RCRA enforcement section has reported
18
that
inspections at a facility with an EMS in place are significantly easier, especially noting
that records were easier to obtain at such a facility.
3.4.5 Recognizing and Rewarding Good Behavior
This was a major focus of discussions. Exploration of this topic was a grant
requirement.
Environmental agencies in the US have generally worked to modify environmental
behavior using regulatory tools, which act to punish those who do not behave
appropriately. This older tool has accomplished much, but it is only one tool. Incentives
or rewards for good behavior have been lacking. It should be understood that
withholding a punishment in not, strictly speaking, the same as an incentive.
The question to begin discussions was: Is it possible or desirable to offer positive
incentives to organizations that show environmental performance beyond what is
required in the law?
The short answer was yes. However, many detailed points emanated out from there.
• EMSs form a framework that allows a company to reliably achieve good or
superior environmental performance, and to document that fact. As noted, it
does not guarantee that performance.
• No one should be rewarded for simply complying with the law, but that is a
necessary first step.
16 EPA’s Audit policy:http://es.epa.gov/oeca/auditpol.html
17 DES Compliance Assurance Response Policy:http://www.des.state.nh.us/legal/carp/
18 verbal communication, 2000
-19-
• It was postulated that the existing framework of laws and regulations only
address about 30% of the true environmental impact we have. This has two
implications:
o ‘Beyond compliance’ performance in regulated areas only pushes that
30% of the envelope outward. However, this may be necessary or
desirable in certain circumstances.
o There is a need to encourage better environmental performance in non-
regulated areas. These non-regulated areas could include energy and
water use, quantity of waste generation (as opposed to the management
of that waste), sprawl, habitat loss, etc. It seems unlikely that these
problems will be addressed using traditional regulatory tools. Arguably,
many of these problems are not well suited to those tools. Further, it
seems unlikely that the environmental agencies’ resource levels will be
increased to the extent necessary to address all these problems using
regulatory tools. A new approach and new tools are needed.
A general agreement emerged that it would be desirable for DES to build a program that
would offer positive incentives to companies in exchange for documented superior
environmental performance. This would likely be a two-tier program. A lower tier would
simply recognize organizations with good compliance histories and EMSs to ensure
more reliable performance. A higher tier would be for the best performers, and could
take the form of a site-specific contract that would in effect trade commitments for
superior environmental performance for incentives from the agency. In general, the
intent is to recognize good performers and to allow an organization the ability to earn its
way into a more desirable relationship with the environmental agencies.
There was a great deal of discussion as to what incentives would be desirable. No
consensus was reached. A list of possibilities includes:
• Public Recognition
o For the higher performers this could include a site visit by the
Commissioner or even the Governor. Such a site visit is very highly
valued, as it brings the reward directly to the staff on the shop floor.
• Single point of contact within the agency
• Expedited permitting
• Self-permitting, or permit modification by notice
• Reduced or consolidated monitoring
• Reduced or consolidated reporting
• Lower inspection priority and/or frequency
• Acceptance of alternative technologies or methods
• Facility-wide permitting and/or emission limits
• Access to State warehouse, similar to that offered to non-profits
-20-
Other incentives were mentioned that seem to be outside of DES’s jurisdiction at this
time:
• Tax credits for environmentally-related equipment or purchases
• Income tax deductions for environmentally-related expenses
• Preferential access to government-backed loans
It seems most likely that no consensus was reached due, at least in part, to the
variability of what would be desirable to different organizations. Similarly, superior
environmental performance cannot be defined in a broad sense. Both performance and
incentive are specific to the location.
DES is currently working internally to develop this concept further to present a program
proposal. The State legislator on the Advisory Committee stated that, in her opinion,
such a proposal would get a good hearing at the State House.
While these discussions were taking place, EPA announced and started a similar
program, called National Performance Track
19.
EPA personnel explained their program
at Advisory Committee meetings. For DES purposes, it seems desirable to maximize
the agreement between state and federal programs, with a goal of reciprocity. It should
also be noted that several other states, notably Wisconsin, New Jersey and Oregon
have experience with such programs. Information on National Performance Track and
other states’ programs was distributed to the Advisory Committee.
During Advisory Committee discussions, it was asked that if such a program – offering
incentives in addition to punishments - represents a real change in how the agency
conducts its business, why has it raised so little public interest? After all, the public
seems to be clearly in favor of vigorous environmental protection. Two explanations
seem possible. First, that the concept is obviously desirable and therefore self-evident.
An Advisory Committee member offered a possible second explanation. In New
Hampshire, a culture of collaborative problem solving in environmental matters is long
standing. This implies that agency-company relations have been less adversarial, and
this new incentive concept arises, at least in part, out of a recognition that being
adversarial is not always the best way to address subtle and complicated environmental
issues and challenges.
3.5 Other DES EMS-Related Activities
During the project period, DES staff also took advantage of many opportunities within
New Hampshire to educate and promote the EMS concept and the ISO 14001 EMS in
particular, including:
• EMS sessions at the annual NH Pollution Prevention Conference.
19 Seehttp://www.epa.gov/performancetrack/
-21-
• “This is an EMS” presentations at local business-training sessions.
• Basic EMS training as part of the University of NH’s P2 Internship training
program.
• Support to the NH Small Business Development Center’s EMS training efforts.
• A presentation on how to assist small businesses build EMSs at a national Small
Business Assistance Program conference
20
.
• Responding to telephone requests for information.
• Development and promulgation of DES policy encouraging the use of EMS
21
.
• Advocacy with DES staff and management. Coordination with DES’s Pollution
Prevention Program was particularly good.
20 This presentation is posted athttp://www.epa.gov/ttn/sbap/conf99a.html. See the agenda for April 19,
1999.
21 Seehttp://www.des.state.nh.us/factsheets/co/co-11.htm
-22-
4. Results and Lessons Learned
4.1 General Lessons and Results
The first lesson learned is that systematic, proactive management of environmental
impacts through an EMS is better than reactive crisis-driven management.
Beyond that, perhaps the most significant lesson learned is that EMS development is a
significant undertaking. The time and effort necessary to accomplish this must not be
underestimated. Material resources, both time and money, are required, but non-
material resources are needed as well. The organization trying to implement an EMS
for the first time must have a clear understanding and acceptance of the plan-do-check-
act management style to successfully bring environmental management beyond single-
project status.
Having stated that, firms that implement EMS report anecdotally that the effort pays for
itself through cost savings. A payback period of one year is most commonly mentioned.
Most of the cost savings appear to be in non-regulated areas such as energy use. The
least economically favorable result known to DES is that the EMS effort was a break-
even proposition. Even in that case, the firm reported that the effort was worth it
because with the EMS in place, the firm had better relations with the environmental
agencies and with their neighbors.
DES’s program was originally set up to design and implement the participating firms’
EMSs over a six to eight month time frame. This was not accomplished, for various
reasons described in this report. It should be noted however, that a firm in New
Hampshire, not participating in the pilot study, reported to DES that it took them six
months to implement their EMS. This is a small electronics component manufacturer,
which was ISO 9000 certified when they started. They were motivated to do this when
their major customer indicated in writing that registration to ISO 14001 would determine
whether that customer would continue to use this manufacturer as a supplier. As a
manufacturer with a single product line, it may be assumed that their environmental
aspect and impact list was fairly short. The company was also relatively new, so the
existing management culture was less ingrained.
One interesting note is that in the course of DES’s EMS training it became necessary to
change the focus from helping the participating firms proceed to convincing them to stop
the planning efforts. That is, it was a challenge to convince them that what they had
was good enough to start with. A lesson here is that it is more important to start one’s
EMS and then improve it, rather than trying to build a perfect system and delay
implementation. Waiting for a perfect system essentially results in never getting started.
Whether or not a firm explicitly starts its EMS while practicing a plan-do-check-act
management style, the effort to implement an EMS involves hundreds, if not thousands,
-23-
of staff hours. Providing the research data, in addition to the effort needed to implement
the EMS, is a significant burden that has contributed to facilities dropping out of the
research program in all of the participating states.
Since 1997, awareness of EMSs and ISO 14001 has become much more common in
NH. DES’s activities, galvanized by this grant, have been important to achieving this
increased awareness.
4.2 Small Businesses
DES’s grant work plan focused on small businesses. Through the work of this project,
DES has learned that EMS development for small businesses is quite challenging. The
chart below illustrates the issues:
Pros Cons
Smaller structure makes communication Communication structure is sub-conscious
easier and un-documentable.
Less organizational inertia and history to No organization
impede change – more flexibility
Staff often empowered to make changes Staff resistant to the concept of
documented procedures
Decision makers easy to identify Decision makers often have no
‘management’ skills
No resources to devote to system
development
The last two issues in the “Con” column merit further discussion. The two key issues
seem to be the lack of resources in the small business environment and the fact that
small business managers/owners most often have no management training. A lack of
familiarity with the “Plan-Do-Check-Act” or TQM approach appears to be a fatal flaw for
anyone looking to develop an EMS.
Good intentions do not overcome this. A person with good intentions will address
individual issues well, but putting a system into place or comprehensively managing all
environmental impacts becomes a matter of chance. A sufficiently talented person may
be able to address all of an organization’s environmental concerns, but the matter is
then dependent on the individual.
Resources become more and more of an issue as an organization becomes smaller.
When the CEO is also the production manager, the human resources administrator, and
-24-
the health and safety officer, there is simply no time to step back to assess and build a
management system.
Specific parts of the ISO 14001 EMS which seem to be problematic for smaller
businesses are:
• Development of standard operating procedures for operational control
• Identification and ranking of environmental aspects and impacts
• Establishing a formal management review process
• Establishing a document control system
• Establishing communication procedures, for both external and internal
communication
Originally, it was anticipated that the DES project could produce a “small business EMS”
template. This proved to be infeasible. Other assistance tools are available though.
These include:
• Training consortiums, similar to the DES-offered training and training recently
offered by NH’s Small Business Development Center. Several small companies
band together to share training costs and collaborate on implementation.
• Assistance from non-traditional sources such as mentors. This would also
include customers, universities or non-profit groups.
• Sector-specific EMS templates. One example of a program developing these is
EPA’s Design for the Environment program
22
.
These could address the issue of resource limitations. To address insufficiency of
management skills, ways should be sought to provide management training to small
business owner/operators.
4.3 Specific Notes on New Hampshire Participating Firms
The first group of firms participating in the DES study did not have a starting point of
having an ISO 9000 quality management system in place. This meant that extra time
was needed to develop a comfort level with the concepts of systematic management.
Further, each of these firms was involved in the project on a strictly voluntary basis; i.e.,
they were doing it because it was the right thing to do. While laudable, this meant that
other issues would often take priority over EMS development.
22 Seehttp://www.epa.gov/opptintr/dfe/
-25-
Each of these three firms told DES that they would not have developed an EMS without
the state coming forward to assist them.
The company in this first group that progressed the furthest was the one with the
clearest commitment from upper management, and had staff from throughout the
organization involved in EMS development. The other two companies in this group
seldom involved more than one person in EMS development, and as a result
development was slow.
On the other hand, the two firms in the second group already had ISO-9000 systems in
place. Both are suppliers to the automotive industry. They joined DES’s project before
the major automotive manufacturers mandated EMS development by their suppliers, but
they were both aware enough of conditions to know that such a requirement was on the
horizon. Thus they had motivators that the other three lacked, and they had greater
knowledge of management systems. However, these two firms did not proceed at the
‘six-month’ pace originally envisioned. Reasons for this can be traced in corporate
management styles and in personnel turnover issues.
One firm’s corporate management style is heavily invested in lean manufacturing
techniques and the rigors of delivering products within a just-in-time inventory system.
Focus at the plant level is at the day-to-day level, even at the shift level, and focus on
broader management planning and execution is difficult to achieve. Support from
corporate management was questionable for much of the project period, and
involvement from other (i.e., outside of the environmental department) personnel has
been highly variable. However, the environmental manager who led the effort was able
to involve some people from other departments in the plant, and achieved some
success. Late in the project period, corporate management became involved to place
ISO 14001 EMSs at all plants within the corporation, and progress has quickened.
The other firm’s management style at the upper levels was entirely different from the
first one’s, and certainly appeared to be more progressive. However, the environmental
manager here did not seem to involve other people in EMS development. EMS
development appeared to be stalling after the point of ranking environmental impacts,
when that environmental manager left the firm. It took almost four months to fill the
position, and it is not known at present how EMS development will proceed. Alone of
the five participants, this firm had not completed any of the research data protocols (as
of mid-2002). They began working on the Baseline Protocol in the late spring of 2000
and on the EMS Design Protocol in the fall of 2000. DES’s project manager has met
with them four times to move the matter along, but the time required to fill out the
Protocol and personnel turnover have resulted in slow progress.
-26-
4.4 Summary of National Research Results
As noted, DES’s project is part of a larger research effort. Results of that research have
been published
23
. A brief summary of results to date, based on Baseline data
describing the firms that implement EMSs and EMS Design data describing the nature
of their EMSs, is included below:
1. EMSs are attractive to small businesses and government agencies, not just large
corporations.
2. Facilities implementing EMSs are not idiosyncratically “green” to begin with.
3. Pollution prevention plans make a difference to EMS practice.
4. Corporate policies matter.
5. Regulatory expectations are the strongest external drivers for EMS
implementation.
6. For businesses, internal drivers are more important than external pressures.
7. Market forces are also important, but in varied ways.
8. Government assistance matters, especially to government facilities and privately
owned (as opposed to publicly traded) companies.
9. Organizational culture is a powerful influence.
10. Environmental Health and Safety managers and staff almost always drive the
EMS design process.
11. Cross-functional work teams to address environmental management appear to
be an important benefit of EMS adoption.
12. External stakeholders are rarely invited into the EMS development process. The
ISO 14001 standard requires that the organization’s environmental policy (only)
be made available to outside parties. Significantly, one investigator found that
about 1/3 of a of sample firms with ISO registered EMSs refused to share their
environmental policy
24
.
23 This list is excerpted from the Executive Summary of Drivers, Designs, and Consequences of
Environmental Management Systems, Research Findings to Date From the National Database on
Environmental Management Systems March12, 2001, posted athttp://ndems.cas.unc.edu/
24 Barton, Alexandra (1999) An Analysis of ISO 14001 Environmental Policy Statements. Report
prepared for Barry Korb, USEPA, Washington, DC. Cited in Drivers, Designs, and Consequences…,
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13. The scope of an EMS may or may not cover an entire facility.
14. There is great variation in how environmental activities, aspects and impacts are
categorized, described and ranked.
15. Ranking the significance of environmental impacts is based more often on
managerial judgment than on formal ranking processes. Regulatory compliance
is heavily weighted.
16. Positive impacts are rarely considered.
17. There is also great variations on how objectives and targets are set. The data to
date indicate that firms are setting short-term objectives and are not addressing
larger environmental issues such as design for the environment, life-cycle
analysis or product stewardship.
One possible public policy conclusion from these preliminary findings is that the
existence of an EMS is not sufficient to provide surety of acceptable environmental
performance, the content of the EMS must be examined as well.
March 12, 2001, cited above
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5. SUMMARY
Through its participation in this project and through the outreach and networking that
DES staff has done, DES has learned that leading organizations have changed the way
they address their environmental affairs through the application of systematic
environmental management systems. These organizations use sophisticated systems
to manage their environmental affairs, both in regulated and un-regulated areas.
Anecdotally, these organizations report that this proactive environmental management
system produces net economic gains for them. This economic gain is seen as both cost
avoidance through better liability control, but also as explicit (and significant) cost
savings. They usually report these cost savings in areas that are not regulated, but are
still of concern to DES, such as energy use, water consumption and the quantity of
waste generated.
Now, leading companies do not view compliance with laws and regulations as a goal,
but as a given. They have learned that ‘deny, delay, and litigate’ as an environmental
management strategy is not effective. These leaders now view environmental
performance in a broader way, and understand that improving environmental
performance leads to improved economic performance. Some are vigorously promoting
full environmental sustainability.
In order for environmental agencies to take advantage of this change in business’
attitudes and encourage better environmental performance in the broadest possible
sense the environmental agencies can reach for these goals:
• Encourage better environmental performance in areas that current regulatory
programs have not succeeded at, which would include: sprawl, non-point source
water pollution, energy use, climate change, water consumption, habitat loss, etc.
• Explicitly shift limited government resources away from high-performing
organizations and toward those whose performance needs to be improved.
New programs are needed to accomplish these goals. This would involve recognizing
and rewarding good performers.
Goals for organizations that would participate in such a program would be to:
• Improve their economic performance while improving their environmental
performance.
• Achieve recognition as good performers
• Improve their relationships with the agencies and with their neighbors.
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Many agencies have already developed incentive programs of various types intended
achieve these goals. Arizona, California, Colorado, Georgia, Idaho, Illinois, Indiana,
Maine, Michigan, New Jersey, New Mexico, North Carolina, Oregon, South Carolina,
Texas, Virginia, and Wisconsin are some of the states that have developed such
programs. USEPA has developed such a program
25
, the National Performance Track
program. In general, the intent is to recognize good performers and to allow an
organization the ability to earn its way into a more desirable relationship with the
environmental agencies. A relationship of collaborative problem solving with
appropriate trust is developed.
The original goal of having data from a number of organizations to answer the questions
related to whether, and how, an EMS affects an organization’s environmental
performance is only beginning to be reached. However, some results of the research
have been published, and the work is continuing. Even without problems in building the
database, the original two-year timeframe may have been too short to see any changes
in environmental performance attributable to EMSs.
However, even if data is only beginning to be available, DES has gained knowledge of
EMSs and their use by organizations. Because of that knowledge, DES has recognized
that organized, pro-active and comprehensive management of environmental impacts
through an EMS is desirable, and has a written policy encouraging the use of EMSs.
However, it appears if the EMS is intended to address public policy needs, the content
of each EMS has to be examined.
25 Information on the EPA’s program, and a summary of state programs, is athttp://www.epa.gov/performancetrack/
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doc_509177780.pdf