Participation as a Pivotal Element of EU Water Policy

1. Participation as a Pivotal Element of EU Water Policy R. Andreas Kraemer & Nicole Kranz Ecologic - Institute for International and European Environmental Policy Berlin - Brussels Watertime Workshop, Lübeck, 26 November 2004

2. Outline • Historical aspects • International developments • Water Framework Directive • Implementation: Focus Germany • Observations • Challenges • Best practice Watertime Workshop, Lübeck, 26 November 2004

3. History Early beginnings • Water management: one of the first environmental policy areas to consider interests of stakeholders • Collective management of water resources • Spain: water scarcity • Netherlands: protection against flooding • Germany: mill authorizations • Involvement of the public dependent on overall political climate and cultural landscape Watertime Workshop, Lübeck, 26 November 2004

4. History Relevant processes in the past 20 years: • Development of public awareness for threats to the environment • Emerging citizens’ movement in reaction • Creation of environmental NGOs • Institutionalization of public participation in integrated planning procedures BUT: • Situation varies across EU • Challenges and shortcomings still exist Watertime Workshop, Lübeck, 26 November 2004

5. International Developments Aarhus Convention: • Signed 1998, entry into force 2001 • Influences EU and national policy-making • Three pillars: Access to information Art. 4 & 5 Public participation in decisions (plans and programs) Art. 6 - 8 Access to justice Art. 9 Watertime Workshop, Lübeck, 26 November 2004

6. European Union - WFD Preamble 14: • Success of WFD directly depends on a successful implementation of PP Preamble 46: • Importance of timely information....before decisions are taken • Report on progress Watertime Workshop, Lübeck, 26 November 2004

7. European Union - WFD Article 14: ‘Public Information and Consultation’  Approach inspired by Aarhus: • Foundation: Information • Consultation during the planning process • Active involvement To be guaranteed To be encouraged Watertime Workshop, Lübeck, 26 November 2004

8. Water Framework Directive Article 14: Consultation 12/’06: timetable for the production of the RBMP incl. PP 12/’07: interim overview of significant management issues 12/’08: draft copies of RBMP Final RBMP contains: 6 months for comments in writing from public 6 months for comments in writing from public 6 months for comments in writing from public Summary of public information measures taken, their results and changes to the plan made as a consequence Contact points and procedures for obtaining background documentation and information, details on measures and monitoring data Watertime Workshop, Lübeck, 26 November 2004

9. Water Framework Directive What’s new? “active involvement” ...from the beginning Self determination Co-Decision-making Challenge for water managers Active involvement Watertime Workshop, Lübeck, 26 November 2004

10. Support with Implementation EU level: CIS - Working group (until 12/’02) ‘Guidance on Public Participation in the WFD’ • Explanations Art. 14 and recommendations • Instruments and techniques • Case studies Germany: Länder Working Group Water (LAWA) • Guideline for the implementation of the WFD • Updated continually • Contains references to PP Watertime Workshop, Lübeck, 26 November 2004

11. Functions of PP • Improving policy-making • Increasing transparency in decision-making • Increasing the efficiency of the implementation of planning decisions • Improving the acceptance of decisions by stakeholder groups • Creation of awareness for environmental issues • Social learning • Using existing experience of stakeholder groups Watertime Workshop, Lübeck, 26 November 2004

12. The public Aarhus Convention WFD considers • organized public • interest groups: industry, fisheries, agriculture • special role: environment NGOs • general public • ‘interested parties’ (Art. 14) = public Article 2 (4) “The public means one or more natural or legal persons, and, in accordance with national legislation or practice, their associations, organizations or groups” Watertime Workshop, Lübeck, 26 November 2004

13. Implementation Multi-dimensional process: variety of approaches Country Level River Basins Local Level Actors Themes Goal Process Good ecological status Watertime Workshop, Lübeck, 26 November 2004

14. Examples International level • International river basin; beyond German borders • Decisions need to be taken in co-ordination with neighbors • International commissions • Stakeholders participation starting at this level • Different cultures and approaches need to be aligned Watertime Workshop, Lübeck, 26 November 2004

15. Examples from Germany North Rhine-Westphalia Stakeholder structure Länder Authorities ... Environment NGOs Agriculture Fisheries Industry Water Associations Municipalities Watertime Workshop, Lübeck, 26 November 2004

16. Examples from Germany North Rhine-Westphalia Länder level • Advisory council, implementation of the WFD • Working group on PP • NRW-Guidance on PP (status analysis) River basin level • Local environment agencies • Working groups  interest groups, organized stakeholders • Fora  information of the public Watertime Workshop, Lübeck, 26 November 2004

17. Examples from Germany Schleswig-Holstein • Working groups in 30 river basin districts • Lead: Water and Soil Associations (!) • Participants • Representatives of municipalities • Authorities • Associations of agriculture, industry, fisheries • Themes • Status analysis • Data collection Watertime Workshop, Lübeck, 26 November 2004

18. Examples from Germany Local Level • Strong link to Local Agenda 21 • Role of water associations • Possibility to reach general public • Hands-on experiences with river management • Creating a stronger awareness for water management issues Watertime Workshop, Lübeck, 26 November 2004

19. Observations: Germany Based on Ecologic’s work: general considerations • PP is responsibility of the Länder • Competent authority for PP is the Länder Ministry for Environment (strategy) • Water authorities ensure the implementation on the regional / local level • Local initiatives bring river basin management closer to the people Watertime Workshop, Lübeck, 26 November 2004

20. Observations / EU State-of-Play • Different status of implementation Focus • Information and consultation prevails, active involvement less frequent • Concentration on status analysis with new challenges coming up Different approaches • Set up of institutional structures (ad-hoc-process) • Activities of stakeholders Watertime Workshop, Lübeck, 26 November 2004

21. Challenges Creation of linkages • Different actor and themes • Different structures • Transboundary co-ordination (national & international) Creation of capacities • Access to participatory approaches • Support for participation Effectiveness of PP • Legitimacy of representation Watertime Workshop, Lübeck, 26 November 2004

22. Best Practice • Early involvement • Stakeholder analysis • Wide range of stakeholders • Clear rules for interaction • Transparency • Using existing potentials • Successful public participation, better decisions, better environmental quality! Watertime Workshop, Lübeck, 26 November 2004

23. Participation as a Pivotal Element of EU Water Policy R. Andreas Kraemer & Nicole Kranz Ecologic - Institute for International and European Environmental Policy Berlin - Brussels Watertime Workshop, Lübeck, 26 November 2004