1. Participation as a Pivotal Element R. Andreas Kraemer & Nicole Kranz
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
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. Good ecological status
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
Hier Anmerkung zum Flußeinzugsgebietansatz.
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
Hier Anmerkung zum Flußeinzugsgebietansatz
Struktur seit 2002
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
Hier Anmerkung zum Flußeinzugsgebietansatz.
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
Hier Anmerkung zum Flußeinzugsgebietansatz.
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 Focus Different approaches
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 Creation of capacities
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 R. Andreas Kraemer & Nicole Kranz
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