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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
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Outline
• Historical aspects
• International developments
• Water Framework Directive
• Implementation: Focus Germany
• Observations
• Challenges
• Best practice
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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
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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
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International Developments
Aarhus Convention:
• Signed 1998, entry into force 2001
• Influences EU and national policy-making
• Three pillars:
Access to
information
Public
participation
in decisions
(plans and
programs)
Access to
justice
Art. 4 & 5
Art. 6 - 8
Art. 9
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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
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European Union - WFD
Article 14: ‘Public Information and Consultation’
 Approach inspired by Aarhus:
• Foundation: Information
• Consultation during the planning process
• Active involvement
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To be
guaranteed
To be
encouraged
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Water Framework Directive
Article 14: Consultation
12/’06: timetable for the production of the RBMP incl. PP
6 months for comments in writing from public
12/’07: interim overview of significant management issues
6 months for comments in writing from public
12/’08: draft copies of RBMP
6 months for comments in writing from public
Final RBMP contains:
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
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Water Framework Directive
What’s new?
“active involvement”
...from the beginning
Self determination
Co-Decision-making
Active involvement
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Challenge for
water managers
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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
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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
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The public
Aarhus Convention
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”
WFD considers
• organized public
• interest groups: industry, fisheries, agriculture
• special role: environment NGOs
• general public
• ‘interested parties’ (Art. 14) = public
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Implementation
Multi-dimensional process: variety of approaches
Country Level
Actors
River Basins
Themes
Goal
Local Level
Process
Good ecological status
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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
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Examples from Germany
North Rhine-Westphalia
Stakeholder structure
Länder Authorities
...
Environment NGOs
Agriculture
Fisheries
Industry
Water Associations
Municipalities
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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
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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
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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
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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
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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
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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
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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!
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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