5.1. The Participating Organizations
The participating organizations are the two Swedish municipalities X and Y, here presented from a sustainability perspective. The presentation is based on reviews of their websites and annual reports, complemented with data/information from internal documentation and interactive workshops.
5.1.1. Municipality X
Municipality X is Sweden’s fourth most populated municipality with approximately 216,000 inhabitants. It is located in central Sweden and has a land area of 2234 km2. The concepts “sustainable development” and “sustainability” are not prioritized on the first page of the municipality’s website. However, when using the search function, the concepts generate a number of hits.
The municipal executive board produces an annual report in which the progress of sustainable development is discussed. In the 2016 version, Agenda 2030 and the global development goals form a central part. The sustainability efforts in the report are summarized under the three headings of economic, social and environmental sustainability. Economic sustainability includes community growth, more companies, business growth and cooperation both within the region and internationally. Social sustainability embraces the respect for human rights, democracy through participation and social investments. Environmental sustainability includes climate change and renewable energy, non-toxic environment, safe water management and sustainable exploitation, biodiversity and ecosystem services. The policy for sustainable development includes the subjects of democracy and equality, economy, public health and environment and climate.
The established objectives and budget for the period 2017–2019 are based on nine main targets: an equal and sustainable economy, the community should be attractive to live, work and stay in, sustainable growth in both city and countryside, equal, with good living conditions, residence and work, children and students should complete their education and be challenged in their learning, residents shall live independent lives and receive support based on their needs, residents and organisations should be involved in the development of society and Municipality X’s employees should have good working conditions and great competence. Activities are identified for each target and indicators are developed and ranked.
The control documentation that supports the established objectives and budget is structured into programs, policies, action plans and guidelines. An important example of a program is the environment and climate program, where one of the long-term goals is that X should be a fossil fuel-free welfare municipality that provides solutions to global ecological recovery and welfare. The community should be fossil-free in 2030 and climate-positive in 2050. The other long-term goal is a non-toxic environment, where the presence of substances in the indoor and outdoor environment, created or extracted by society, should not threaten human health or biodiversity. In order to reach the long-term goals, eight targets are presented:
Renewable and climate-neutral heating by 2020
Solar energy—30 MW solar energy by 2020
Fossil fuel-free municipal vehicle park by 2020, as well as fossil fuel-free machinery and climate-neutral transports by 2023
25% more energy-efficient by 2020
Sustainable procurement for a non-toxic environment by 2020
100% organic food by 2023
Increase sustainable construction and management
Sustainable business, operations and green jobs
Two examples of policies included in this study are the policy for sustainable development and the procurement policy. The policy for sustainable development includes the subjects of democracy and equality, economy, public health and environment and climate. In the procurement policy, the concept “sustainable procurement” is proclaimed in order to “contribute to social development, environmental and climate-driven business development and ethically sustainable production of goods and services”. More specifically, it is about contributing to the municipality’s environmental and climate goals, promoting good working conditions and gender equality in working life, following labor market conditions and collective agreements and counteracting discrimination and corruption.
Municipality X also have a great amount of action plans and guidelines supporting programs and policies that are not included in this study since their degree of detail is not necessary for this study. The control documents included in this study is presented in
Table 5.
5.1.2. Municipality Y
Municipality Y is Sweden’s sixth most populated municipality with approximately 150,000 inhabitants. Municipality Y is the main town in the county and is located in central Sweden with an area of 1380 km2 (land area). In the municipality there are residents from around 165 different countries. The city itself is more than 700 years old.
The concepts “sustainable development” and “sustainability” are not prioritized on the first page of the municipality’s website. However, when using the search function, the concepts generate a large number of hits. The municipal executive board and committees produce an annual report and, in the 2016 version, sustainable growth, people’s empowerment, children and young people’s needs and welfare securement are in focus. Sustainable growth means companies establishing, growing and developing in the municipality, good communications for citizens and a reduced climate impact. People’s empowerment means that citizens can contribute to the development of the municipality but also includes coordination for a well-functioning refugee reception and service equality. Children and young people’s needs include social investments, working according to the action plan against child poverty, the implementation of the UN Convention on the Rights of the Child and so forth. A safe welfare is also highlighted in order to increase the perceived safety of people and here crime prevention is mentioned. Self-assessment has been conducted in relation to the municipal executive board’s contribution to development in these four strategic areas, where the rating is green for them all, thus indicating that the goals will be reached.
Municipality Y’s control documentation is structured into programs, policies, strategies, action plans and guidelines. A program expresses the value base and desirable development in the municipality. The policy states a value-based approach and principles for guidance. A strategy confirms a program or policy and provides a basis for priority. An action plan describes objectives and actions and the guidelines ensure proper action and good quality when activities are handled and performed.
One important program included in this study is the environmental program that describes the municipality’s environmental work. The program is divided into five focus areas; climate, biodiversity, water, non-toxic environment and a good built environment. For each focus area overall and detailed environmental objectives, implementation activities and references to underlying documentation are presented.
An example of a policy is the procurement policy with a value-based approach. This means that sustainable procurement requires a holistic view, where the municipality should ensure that purchases are made in economically, socially and ecologically sustainable ways that comply with agreements, laws and regulations. The citizens should feel confident that the municipality chooses goods, services and contracts that provide good cost-effectiveness with low environmental impact. The procurement should contribute to the innovation of new environmental technologies, as well as ensure good environmental and health, economic and social welfare and justice for present and future generations. The life cycle perspective is fundamental in calculating cost-effectiveness.
One important example of a strategy is the climate strategy that was adopted in June 2016. The climate strategy includes the long-term goal that the climate load per person in Municipality Y which, if applied globally, should be at a level that does not endanger the Earth’s climate. The strategy is developed in stages, where the municipality as a geographical area should reduce climate load by 100% in 2045 by using climate policy instruments, renewable electricity generation, energy efficiency measures, district heating, biogas and so forth. The objective for the municipality as an organization is to be climate neutral by 2030 by means of energy efficiency measures, the municipality’s fleet becoming more climate-friendly, an increase in the use of renewable fuels, a reduction in food waste within the municipality’s organization, an increase in the purchase of organic and near-produced food and so on. The climate strategy is ambitious, as can be seen by the goals/sub-goals and indicators that have been developed and presented. Municipality Y also have a great amount of action plans and guidelines supporting programs, policies and strategies that are not included in this study since their degree of detail is not necessary for this study. The control documents included in this study is presented in
Table 5.
A new position as sustainability manager was established in 2017 in order to support ecological, social and economic sustainability and achieve the Agenda 2030 goals. The sustainability manager’s overall task is to ensure that sustainability work permeates all the municipality’s activities.
5.2. Sustainability Performance of Two Swedish Municipalities
The sustainability practices of the municipalities are correlated to the sustainability aspect matrix as shown in
Table 6. The core objects from
Table 3 are listed in the left-hand column: environment, human rights, labor practices, fair operating practices, society, economic aspects, customer responsibility and global challenges. Several sustainability aspects are presented under each core object. The column “summary” corresponds to how the sustainability aspects are addressed by the scientific and regulatory framework along with the sustainability initiatives, guidelines and tools (see
Table 3,
Section 3). The “X” in the columns for Municipality X and Y marks which sustainability aspects are addressed by the municipalities.
Municipality X has focused its environmental efforts on climate action, biodiversity, land use, freshwater use, chemical pollution and the sustainable use of energy and water, which correspond well with the result in the matrix. However, it has not prioritized the prevention of pollution by reducing emissions to air, discharges to water and waste management, which also generated a high score in the matrix. Instead, Municipality X has prioritized ecosystem services, which generated a lower score (n ≤ 3) in the matrix. Municipality Y has also targeted climate action, biodiversity, freshwater use, chemical pollution, waste, recycling and the sustainable use of energy and water. Y has chosen not to focus on other important aspects in the matrix, such as land use and the reduction or elimination of pollution through emissions and effluents.
Regarding the core subject human rights, the matrix complies well with the municipalities’ prioritized aspects. The only difference is that X has preferred the aspect indigenous rights/national minorities, which is not highlighted in the matrix. On the subject of labor practices, the matrix complies well with Municipality X. Municipality Y has also prioritized employment and decent working conditions but has chosen the aspect occupational health and safety before training and education in the work place. In terms of fair operating practices, the municipalities have prioritized anti-corruption and responsible supply chain management, both of which are in line with the matrix.
Also apparent from the matrix is that the core subject society generated many aspects but none that were considered overly important. However, society is a very important area for both municipalities. Aspects such as sustainable communities, reduced inequalities, industry, innovation and industry, enterprising and entrepreneurship, culture and art, sustainable transports, employment creation and skills development, safety and security in society and social investments are all regarded as important. Municipality X also highlights sustainable industry and forestry.
Economic aspects and customer responsibility are of less importance in the initiatives summarized in the matrix. However, both municipalities highlight sustainable economic growth. Additionally, X has chosen to prioritize the aspect products and services. The matrix identified peace, justice and strong institutions, whereas the municipalities instead preferred to work with partnership, both locally and internationally.
In the last workshop, municipality X, conducted a risk assessment, where the risk was understood as the potential severity of consequences an aspect could have for the organization and the likelihood of harm. The risk assessment was initiated in a discussion about how to tackle the task. The issue was to determine whether it should look at the numerous sustainability aspects from a general perspective or from a municipality perspective and take previous work into account. It decided on the latter. In the column “estimation of risk” in
Table 6, the municipality’s estimation of “potential severity of consequences an aspect could have for the organization” is presented, where 1 is the lowest risk and 5 the highest. The saliency from the first step was then plotted against the risk assessment. The result is presented in
Figure 1. Note that on several occasions a dot represents several sustainability aspects.
Figure 1 shows the result of combining the overall saliency and risk scores across the sustainability aspects. The sustainable use of water and material is located in the lower left-hand corner, signifying that these aspects have relatively low saliency and low risk for Municipality X. Aspects with high saliency yet low risk are represented in the upper left-hand corner of
Figure 1. These aspects are the use of water and energy, effluents and waste, good education for all, food security, sustainable supply chain management, sustainable forestry and land use and providing for affordable and clean energy. The lower right-hand corner of
Figure 1 contains aspects with high risk but low saliency. These aspects are highly specific to the municipality. Here we find no poverty, responsible political involvement, to feel safe and secure in society, sustainable economic growth, enterprising and entrepreneurship and social investment. A large number of aspects are located in the upper right-hand corner of
Figure 1, signifying that these issues have higher levels of risk and saliency. Environmental aspects are climate action, biodiversity, freshwater use, emissions and chemical pollution. The human rights aspects are good health and well-being, children’s rights, gender equality, reduced inequalities, non-discrimination and voice. The labor practice aspect of training and education in the workplace is also located here.
The sustainability aspects for the municipality X are plotted in order of priority in
Figure 2. The priority is calculated by adding the terms from saliency and risk. The sustainability aspects are plotted as a descending scale, where the highest sum becomes number one in priority, the second highest sum becomes number two in priority and so on. Thus, the order of priority should be read from the left to the right in the table. However, some aspects generate the same sum and are consequently plotted in the same position.
Figure 2 presents the most prioritized aspects in order of priority. The progression is shown on the
y-axis, while time is displayed on the
x-axis. The highest priority aspects are expected to be addressed first.
Figure 2 thus demonstrates a progression through increasingly lower priority aspects over time. The figure shows that the aspects climate action and biodiversity are the most urgent to address.