This chapter examines the landscape of sustainable development in Belgium. Focusing on the federal level, it reviews the legal and policy framework and the mechanisms in place to integrate the Sustainable Development Goals (SDGs) into the federal agenda in a coherent way. It explores the connections between the federal sustainable development initiatives and the broader framework defined by the European Union, highlighting collaborative efforts towards common goals. It also outlines the roles and responsibilities of the various stakeholders in Belgium's sustainable development journey, identifying their mandates and the wide range of tasks they undertake to advance this agenda.
OECD Policy Coherence Scan of Belgium
Strengthening Institutional Mechanisms for Sustainable Development
Abstract
Belgium was among the first countries to adopt a legal, strategic framework for sustainable development at the federal level, doing so in 1997. It acts as a basis for implementing the federal strategy, the federal plan and other instruments and tools for coherent public policies on sustainable development, as outlined below.
1997: The Act of 5 May 1997 (or “The 1997 Act”)
The Act of 5 May 1997 established an institutional framework for sustainable development involving regular processes of reporting, planning, consulting, implementing and monitoring, with the objective of developing federal measures that promote sustainable development. Moreover, the law states (Government of Belgium, 1997[1]) that the federal government should set out a sustainable development plan that considers the Long-Term Vision for Sustainable Development and related international commitments such as Agenda 21, adopted at the United Nations (UN) Conference on Environment and Development (United Nations, 1992[2]). To achieve this, it creates and empowers four main federal institutional actors responsible for developing, implementing and evaluating this co-ordination policy:1
the Interdepartmental Commission for Sustainable Development (ICSD)
the Federal Institute for Sustainable Development (FISD)
the Task Force on Sustainable Development (TFSD) of the Federal Planning Bureau (FPB)
the Federal Council for Sustainable Development (FCSD).
Established by the Act of 5 May 1997, the legal framework embodies a classic Plan-Do-Check-Act (PDCA) approach. This involves the continuous cycle of creating Federal Plans for Sustainable Development (FPSD), implementing them, generating Federal Reports on Sustainable Development, and subsequently evaluating and refining these plans as part of a learning curve (FISD, 2023[3]). The FPSD outlines a five-year plan with actions and measures at the federal level to fulfil international and European commitments and align with the federal government's Long-Term Vision (LTV) for Sustainable Development. Federal administrations implement these actions, and the Team Sustainable Development (TSD) of the FPB (previously the TFSD of the FPB) regularly assesses their progress. The evaluation forms the foundation for the subsequent five-year cycle of sustainable development initiatives.
The law has been revised several times since 1997 to simplify tools, review the composition of main bodies or, for example, establish a federal Long-Term Vision for Sustainable Development. Some of these amendments are listed below. They are submitted by royal decree for the King's signature after deliberation by the Council of Ministers following parliamentary debate and consultation with civil society.
1999-2003: Appointment of a Secretary of State for Sustainable Development
In 1999, the Verhofstadt I federal government appointed a Secretary of State for Sustainable Development for the first time. In 2002, the Federal Public Planning Service for Sustainable Development (FPP SD) was created, with responsibility for preparing and co-ordinating sustainable development policy and providing expertise (CRISP, 2020[4]). This can be seen as the “fourth actor” of the 1997 Act. This public service was embedded in the law in 2010.
22 September 2004: Royal Decree on the Creation of “Sustainable Development Cells”
The Royal Decree of 22 September 2004 led to the creation of Sustainable Development Cells in all federal administrations (they are sometimes seen as a collective “fifth actor”), including the federal public programming services and the Ministry of National Defence. The Sustainable Development Cells translate the ambition to involve all federal administrations in implementing the FPSD and to gather experts around the co-ordinator for sustainable development in each federal administration (CRISP, 2020[4]). The decree also demonstrates the political will to introduce sustainable development assessments, as one of the Cells' tasks is to carry out and/or co-ordinate sustainability impact assessments (SIAs) (Paredis et al., 2006[5]).
2007: Sustainable development ratified in Article 7bis of the Belgian Constitution
The national policy on sustainable development in Belgium has been outlined in Article 7bis of the Belgian Constitution since 2007. This article emphasises that the federal state, communities (Flemish, French and German-speaking), and regions (Wallonia, Flanders and Brussels-Capital), in the exercise of their respective powers, must contribute to achieving sustainable development across social, economic and environmental dimensions while considering intergenerational solidarity (SDGs Belgium, 2024[6]).
2010: The Act of 30 July 2010 amending the Act of 5 May 1997
While the original 1997 Act already included an international dimension, aligning Belgium with EU policies and international recommendations, the 2010 amendment (Government of Belgium, 2010[7]) introduced significant advancements. It incorporated a long-term vision and impact assessment into the law and improved the mechanism following an internal evaluation process, including a 2006 audit by the Court of Audit.
Between 1999 and 2012: Federal Plans for Sustainable Development
Between 1999 and 2012 (FISD, 2023[3]), two FPSDs were adopted: the FPSD 2000‑2004 and the FPSD 2004-2008. The FPSD 2009-2012 remained at the preliminary draft stage due to the political context of the time and the reform of the law. The main reason the FPSD remained a draft was likely due to a Belgian law reform around 2007-09. The legislative basis for sustainable development was affected by this reform, necessitating a revision of the FPSD to bring it into compliance. For this reason, the FPSD 2004-2008 was extended until 2012.
6 June 2012: Creation of the (national) Interministerial Conference on Sustainable Development
The Interministerial Conference on Sustainable Development (IMCSD) was established at the national level in 2012. Composed of federal, regional, and community ministers responsible for sustainable development and development co-operation, the IMCSD serves as the central co-ordination mechanism beyond electoral cycles. The specific mandates of the IMCSD, updated in 2016, include:
contributing to implementing the 2030 Agenda for Sustainable Development in Belgium, notably through a national strategy
preparing Belgium's contributions to European and multilateral reporting processes concerning the 2030 Agenda implementation, including the High-Level Political Forum on Sustainable Development, and drafting relevant reports on Belgium's progress and challenges
assisting administratively in preparing Belgium's positions for discussions and adoption via a Transversal Multilateral Issues and Multilateral Co-ordination Service (COORMULTI) and Directorate General European Affairs and Coordination (DGE) meetings organised by the Federal Public Service for Foreign Affairs, Foreign Trade, and Development Cooperation
involving partners that assist the IMCSD in executing these missions, including sectoral policy co‑ordination bodies, civil society representatives, the private sector and academia.
8 October 2013: Long-Term Vision for Sustainable Development
The federal authorities are legally responsible for establishing a federal, strategic LTV for Sustainable Development to 2050 (Government of Belgium, 2013[8]). The LTV has existed since 2013, and it includes political goals for 2050 and indicators to monitor the achievement of these goals, designed to meet international and European commitments. It was created to serve as a reference framework for the activities of the ICSD, FISD and the FPB, to be used as an umbrella for the cycle of FPSDs and reports introduced by the Act of 5 May 1997, amended by the Act of 30 July 2010. Each of the actors involved in the co-ordination of the federal Law on Sustainable Development Policy of 5 May 1997 contributed to the definition of this LTV. These included the Planning Service for Sustainable Development (PPS SD), the ICSD, the FCSD, and the TFSD (now TSD). Experts from all federal public services and public planning services, civil society, and the federal parliament were also consulted before the text was finalised. The final LTV encompasses 55 goals towards 2050 gathered under 4 main pillars. The FPSDs serve as instruments for implementing and achieving the 2050 goals.
19 March 2013: Law on Development Co-operation
The Law on Development Co-operation (Government of Belgium, 2013[9]) is the legal basis defining the principles and methods of Belgian co-operation in response to federal development co-operation policy and actions carried out through governmental, multilateral and non-governmental channels and by means of other instruments that are or have been considered official development assistance by the Development Assistance Committee (DAC) of the OECD. The law aims to make Belgian official development assistance more effective and sustainable, by adopting an approach to: human rights, including children's rights; decent and sustainable work; and consolidation of society, integrating gender as well as climate change (Art.11§1) and focusing on the three pillars of sustainable development (economic, social and environmental) (Art.11§2). The law refers to and builds on just transition to sustainable production and consumption methods (Art. 2§12), sound governance (Art.2§14), Policy Coherence for Development (Art.2§16) and a rights-based approach (Art.2 §18) - cultural, civil, political and development rights - mainly focused on the following four sectors: healthcare, including health access; education and training; agriculture and food security; and basic infrastructure (Art.19). The principle of Policy Coherence for Development defined in article 2§16 and implemented by the Royal Decree of 2 April 2014 is thus enshrined as a legal obligation. This is also set out in the Law on Development Cooperation: “In order to ensure the effectiveness of Belgian development cooperaton and achieve its overall objectives, maximum coherence in favour of development is sought between the various areas of Belgian policy. Mutually reinforcing policy actions within different government departments and public institutions are encouraged with a view to creating synergies aimed at achieving the development objectives agreed by Belgium (Article 8).
2 April 2014: Royal Decree establishing an advisory Council on Policy Coherence for Development
This Decree established the advisory Council on Policy Coherence for Development (PCD), as defined in the Law on Development Cooperation (Art2§16): “PCD is a process to ensure that the objectives and results of a government's development co-operation policies are not undermined by other policies of that government that have an impact on developing countries, and that these other policies support, where possible, the objectives of development”. The priority areas of PCD are trade and finance, climate change, food security, migration, and peace and security. The main tasks of the Council, composed of equal numbers of members from the scientific community, academia and civil society experts, are to advise the relevant Belgian ministers on federal measures that have an impact on developing countries (Kingdom of Belgium, 2014[10]).
2014: Royal Decree establishing FISD within the Federal Public Service Chancellery of the Prime Minister
In 2014, the PPS SD evolved into the FISD, gaining a permanent status (Développement Durable, 2023[11]; Service public fédéral Justice, 2014[12]). This new body did not replace the other federal administrations but assisted the federal government in preparing sustainable development policy. The Institute is also responsible for co-ordinating the implementation of this policy and reports. However, it is organisationally attached to the Chancellery of the Prime Minister and the Federal Minister for Sustainable Development. FISD chairs the ICSD and delivers its secretariat.
2017: Approval of the first National Sustainable Development Strategy
The first National Sustainable Development Strategy (NSDS), approved by the IMCSD in 2017, provided a framework for the main governmental actors at the federal, regional and communal levels to combine their efforts to achieve the SDGs by strengthening coherence and co-ordination. Priority themes include sustainable food, sustainable buildings and housing, sustainable public procurement, means of implementation, awareness raising and contributions to follow-up and review. The NSDS suggests a national 2030 Agenda implementation report be issued jointly to all parliaments twice per government term.
2017: First Voluntary National Report presented to the High-Level Political Forum (HLPF)
To prepare the first Voluntary National Review (VNR) report (Government of Belgium, 2017[13]), a political steering committee was formed, chaired by the prime minister and supported administratively by the Ministry of Foreign Affairs. This was a comprehensive national exercise, with contributions from all communities, ensuring a collaborative approach to the review process. The committee included representatives from various federal and regional entities involved in implementing the 2030 Agenda and the SDGs. The tasks were divided among different entities: the ICSD, responsible for collecting data on the implementation within the federal ministries; the Federal Ministry of Foreign Affairs, responsible for collecting data on external action and within federated entities; and the Interfederal Statistical Institute, responsible for gathering statistical data. In addition, administrations included civil society initiatives from the outset, shaping the final report. The draft underwent consultation, fostering dialogue between stakeholders and the political steering committee. The result served as a reference point to guide future action at the federal level to analyse gaps, monitor progress and evaluate impact, as well as to improve collaboration with civil society in implementation and review and strengthen accountability to parliaments, civil society and the Belgian authorities.
2020: Court of Audit SDG Preparedness Review on the implementation, monitoring and reporting of the UN 2030 Agenda by public authorities in Belgium
Next to the legal framework, the Court of Audit published in 2020 a Preparedness Review on the implementation, monitoring and reporting of the UN 2030 Agenda by public authorities in Belgium (Court of Audit of Belgium, 2020[14]). It explored the strategies in place in all governments to implement the 2030 Agenda, addressing policy coherence issues. The Court of Audit formulated recommendations and published a follow-up report in December 2023 (Court of Audit of Belgium, 2023[15]).
2021: Adoption of a new Federal Plan for Sustainable Development
Following the inauguration of a new government in October 2020, a new FPSD was prepared and adopted on 1 October 2021. This five-year plan is central to federal sustainable development policy. The implementation of the FPSD is monitored through the ICSD's yearly report. The Federal Report on Sustainable Development 2024 (Government of Belgium, 2024[16]) published by the FPB includes the evaluation method and the initial results of the FPSD 2021 implementation. With the SDGs and the federal LTV for Sustainable Development, the federal government is accelerating its efforts to realise the UN's Agenda 2030 under the Third Federal Plan for Sustainable Development.
2023: Second VNR is presented to the HLPF
In 2023, Belgium published its second VNR (Government of Belgium, 2023[17]) during the UN HLPF. The preparation of this report saw the reinvigoration of the IMCSD, which had been inactive from 2017 until early 2022. Acting as a co-ordination mechanism, as recommended by the Court of Audit and with a rotating presidency between the governments of the federal and federated entities, the IMCSD was chaired by the federal authority between October 2022 and September 2023, while FISD provided the secretariat. The preparation included contributions from various government and civil society actors, as well as inputs from multiple stakeholders via the FCSD. The FCSD was the main actor for collecting input from civil society organisations (CSOs) throughout the process, which included: 1) written contributions; 2) discussions within CSO groups during the SDG Forum; 3) delivery of their input and subsequent opinions on the draft report; and 4) dialogue with political representatives regarding responses to their comments.
Belgium has actively engaged with the European Union's sustainability agenda, ensuring its federal policies align with the SDGs and contribute to the broader EU objectives for sustainable development. Belgium's approach to sustainable development is deeply rooted in its adherence to European regulations and directives (Mondaq, 2022[18]), such as the Environmental Impact Assessment Directive and the Seveso Directive, which govern environmental law in the country. This indicates that reviews of laws and regulations for alignment with sustainability are at least partly conducted through compliance with broader European legislative frameworks.
Circular Economy Action Plan (first package adopted in December 2015)
Belgium has demonstrated a strong commitment to the European Union's Circular Economy Action Plan, adopted in December 2015, through diverse initiatives to achieve its goals. First, the country has incorporated directives outlined in the Action Plan into its federal legislation. This includes promoting extended producer responsibility (EPR) schemes and introducing regulations to reduce single-use plastics, all of which contribute to the transition towards a circular economy. Furthermore, Belgium promotes eco-design principles by encouraging businesses to design products that are easier to repair, reuse and recycle. Belgium is aligning with the Action Plan's focus on the entire product lifecycle by providing incentives and participating in EU initiatives promoting eco-design. These efforts underscore Belgium's commitment to advancing the goals of the European Union's Circular Economy Action Plan, contributing to a more sustainable and resource-efficient economy, both nationally and within the European Union.
European Green Deal (December 2019)
Belgium has aligned its federal sustainability initiatives with the European Green Deal, announced in December 2019, which aims to make the European Union climate-neutral by 2050. In compliance with Regulation (EU) 2018/1999 on the Governance of the Energy Union and Climate Action, Belgium developed its National Energy and Climate Plan (NECP) for 2021-2030. This plan emphasises greenhouse gas reduction, energy efficiency, energy security, internal energy market integration and innovation. The NECP was created through public consultation and was submitted on time, with updates per EU mandates. Belgium's government agreed upon the draft updated NECP for 2023 on 22 November. The European Green Deal, catalysed by the Paris Agreement, drives Belgium’s enhanced climate efforts at the federal level. Belgium’s ambitious NECP contributes to the European Green Deal’s overarching goals, accelerating the European Union's progress towards a sustainable and climate-neutral future.
EU Biodiversity Strategy for 2030 (adopted in May 2020)
Belgium's national strategies, such as the NSDS adopted in 2017, are typically broader and serve as umbrella frameworks for various sustainability efforts, including biodiversity. While a national strategy focused solely on the EU Biodiversity Strategy for 2030 (Service public fédéral Santé publique, Sécurité de la chaîne alimentaire et Environnement de Belgique, 2024[19]) does not exist, updates to existing strategies will likely reflect new EU goals. These updates are expected to consider the EU Biodiversity Strategy within the context of broader sustainability goals, ensuring national efforts in sectors like agriculture and land use incorporate biodiversity conservation principles. Overall, Belgium demonstrates a commitment to aligning with the EU's biodiversity goals by integrating them into a comprehensive sustainability framework through ongoing updates to national strategies.
Fit for 55 Package (proposed in July 2021)
As an EU Member State, Belgium is obligated to implement EU legislation and contribute to achieving the bloc's overall climate goals, with the Fit for 55 Package becoming part of the legal framework that Member States need to comply with once adopted. Belgium already has a NECP outlining its strategy for reducing greenhouse gas emissions. During its presidency of the EU Council for the first semester of 2024, Belgium continued to advance the climate agenda and align national policies with the Fit for 55 Package's goals. Additionally, Belgium is already implementing several measures that contribute to the package's objectives, such as promoting renewable energy and investing in energy efficiency improvements.
Additionally, Belgium's proactive approach extends beyond environmental policies. The European Semester, a framework for co-ordinating economic policies across the European Union, plays a crucial role. Belgium integrates the European Semester's country report and country-specific recommendations, which are aligned with the SDGs, into its national framework. This ensures a balanced and comprehensive strategy towards achieving the SDGs and contributing to the European Union's collective targets for sustainable development. This alignment illustrates Belgium’s commitment to integrating EU sustainability goals and directives into its national policies, ensuring cohesion and comprehensiveness in its approach to sustainable development.
In Belgium, sustainable development policy is shared between the federal, regional and communal levels. The federal minister in charge of sustainable development works with regional and community ministers to ensure policy coherence across the country, supported by various key actors, as highlighted in Figure 2.1 and Table 2.1.
Source: Authors’ elaboration.
Source: Authors’ elaboration.
To conclude, as evidenced above, Belgium has a long-standing commitment to sustainable development and has established a comprehensive legal and institutional framework for its promotion. In 1997, Belgium laid the foundation for its sustainable development policies through the Act of 5 May 1997. Numerous amendments followed this law, each building on and refining the framework to address emerging needs, such as the LTV in 2010 and establishing the FISD in 2014. The federal legal framework was complemented by the establishment of the IMCSD in 2012. These institutional mechanisms provide the overarching framework for SDG co-ordination in Belgium and contribute to ensuring that efforts toward sustainable development are not only aligned with national priorities but are also consistent with EU goals, including the European Green Deal and the Circular Economy Action Plan.
Belgium promotes sustainable development at several levels of government, requiring a multi-level governance approach, where various actors, each with distinct mandates and responsibilities, work together towards a shared vision (NSDS). This intergovernmental collaboration is facilitated through bodies such as the IMCSD, which co-ordinates efforts between ministries and across different levels of government. Subsequent chapters explore the modalities of this collaboration in detail, pointing to strengths and weaknesses and suggesting options for improvement.
Belgium’s integration with EU policies further strengthens its commitment to achieving the SDGs, as seen in its adherence to EU directives on circular economy, energy efficiency and biodiversity. This alignment with EU strategies ensures that Belgium contributes meaningfully to regional sustainability goals while driving forward its national agenda. Moreover, during its presidency of the Council of the European Union in 2024, Belgium spearheaded efforts to enhance PCSD across the European Union, leading to the establishment of a Voluntary Task Force on PCSD under the EU Working Party on the 2030 Agenda for Sustainable Development.
These mechanisms and initiatives collectively enable the federal government to play a central role in driving and co-ordinating sustainable development policies. Other critical players, including the FPB, the FCSD, and the ICSD, each contribute to the implementation, monitoring and evaluation of federal sustainable development policies. These actors, often in consultation with civil society and the private sector, create a dynamic, inclusive system for advancing SDGs across multiple sectors.
This chapter has set the stage for understanding the depth and complexity of Belgium’s federal institutional framework for sustainable development. It provides a snapshot of an evolving system that reflects the country's legal commitment to sustainability, its proactive role in supporting EU policies, and the collaborative engagement of key actors at various levels of governance.
References
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[1] Government of Belgium (1997), Loi relative à la coordination de la politique fédérale [Law on the Co-ordination of Federal Sustainable Development Policy], https://www.ejustice.just.fgov.be/mopdf/1997/06/18_1.pdf#Page1.
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[18] Mondaq (2022), Environment and Climate Regulation Comparative Guide, https://www.mondaq.com/environment/1131008/environment-and-climate-regulation-comparative-guide#:~:text=In%20Belgium%2C%20environmental%20law%20is,Authorisation%20and%20Restriction%20of%20Chemica.
[5] Paredis, E. et al. (2006), Methodology and Feasibility of Sustainability Impact Assessment. Case: Federal Policy-making Processes.
[6] SDGs Belgium (2024), National Policy, https://sdgs.be/en/national-policy#:~:text=7bis%20of%20the%20Constitution%20%2C%20which,taking%20into%20account%20intergenerational%20solidarity.%22.
[12] Service public fédéral Justice (2014), Arrêté royal portant création de l’Institut fédéral pour le Développement durable auprès du Service public fédéral Chancellerie du Premier Ministre, https://www.ejustice.just.fgov.be/eli/arrete/2014/02/21/2014011144/moniteur.
[19] Service public fédéral Santé publique, Sécurité de la chaîne alimentaire et Environnement de Belgique (2024), Mise à jour de la stratégie nationale belge pour la biodiversité à l’horizon 2030, https://www.health.belgium.be/fr/mise-jour-de-la-strategie-nationale-belge-pour-la-biodiversite-lhorizon-2030.
[2] United Nations (1992), Agenda 21, https://sustainabledevelopment.un.org/content/documents/Agenda21.pdf.
← 1. For more information, see https://www.developpementdurable.be/fr/politique-federale/strategie-federale/acteurs.