Environment for Europe Conference Report Volume IThe ministerial conference "Environment for Europe" at Dobris Castle in June 1991, which built upon the 1990 conferences of Bergen

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Environment for EuropeMinisterial Conference, Luzern, 28th-30th April 1993

Conference ReportVolume I

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Ministerial Declaration, Executive Summary, Conference Proceedings,Press Release, Documents and Participants List

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Preface

The Luzern Ministerial Conference was special in character and may have been of seminalimportance. This has been the unanimous view expressed by the many testimonials to reachthe host country since the conference. It came at a crucial time in European history, a time ofhope and renewal rendered precarious by economic and social tension and outright conflict.It provided the opportunity for our governments to affirm their determination to intensifytheir cooperation, in a spirit of partnership and fully acknowledging their globalresponsability, towards convergence of environmental quality and policies in Europe.

The conference was special in that it succeeded, through its extensive preparatory process, inmobilizing governments, international organizations and financial institutions and the privatesectors for a common endeavour in a concrete and directed manner. Building on previousEuropean Conferences of ministers of the environment, in particular Dobris Castle, itlaunched an important process in the course of which - with the progressive implementationand adaptation of the Environmental Action Programme for Central and Eastern Europe andthe step by step development of the Environment Programme for Europe - cooperation in thefield of the environment will become, in the words of the Luzern Ministerial Declaration, "astrong integrating force" and "one of the corner stones" for the construction of Europe.

These two volumes of the Conference Report are intended to serve as referencedocumentation, reminding us of the work that has allready been done and serving as a basisfor our work in preparation of our next conference in Sofia and beyond.

It remains for me to express again my sincere gratitude to all the participants of theconference - ministers, civil servants, heads and representatives of international organizationsand financial institutions, delegates of the informal sectors and representatives of the media -for having accepted our invitation to come to Luzern and for having established once and forall the process "Environment for Europe".

Ruth Dreifuss

Federal Councillor

Head of the Federal Department of the Interior

^ It 6 4 G9*21 e e

Technical Note

This Conference Report has been compiled in two volumes. Volume I contains the maindocuments of the Conference, i.e. the Ministerial Declaration and the Executive Summaryof the Environmental Action Programme for Central and Eastern Europe together with thecollection of the key note and main speeches under the various agenda items as well as theparticipants and documents list and the press release. All texts have been reproduced in theirEnglish version. The non-English versions of the Ministerial Declaration and of theExecutive Summary have been included as an Annex, as they have not had the formalapproval of the Conference.

Volume II is a collection of the statements and other documents that were provided to theExecutive Secretariat at Luzern for inclusion in the report. These texts have beenreproduced without any further editorial treatment.

The Executive Secretary

Thomas Litscher

II

Table of contents

PART I: Ministerial Declaration and Kxecutive Summary

- Ministerial Declaration I- Statements concerning the Ministerial Declaration

by the delegation of Austria 12by the delegation of Belgium 13by the delegation of Denmark on behalf of the European Community 14by the delegation of the infonual cnviiunment / development sector 15

- Executive Summary, Environmental Action Programme 17for Central and Eastern Europe

PART II: Conference Proceedings

- Agenda 28

Opening Statements byFederal Councillor Ruth Dreifuss, Switzerland 29Minister Frantisek Benda, Czech Republic 32

Presentation of the Results of the Preparatory Process by

Wilhelm Schmid, Chairman of the Group of Experts 34

Key Note and Main Speeches:

- Item 2: Environmental Action Programme for Central and Eastern EuropeMinister Jänos Gyurkö, Hungary 38Vice-President Wilfried Thalwitz, World Bank 42Secretary General Catherine Lalumière, Council of Europe 47

- Item 3.1 : Evolving Environmental Programme for EuropeEnvironmental InformationCommissioner Yannis Palcokrassas, Commission of theEuropean Communities 52

- Item 3,2: Innovative Instruments of Environmental PolicyMinister Svcnd Aukcn, Denmark 55Deputy Secretary General Pierre Vindc, OECD 60

- Item 3.3: Monitoring, Compliance, Enforcement in Environmental PolicySecretary of Slate Michael Howard, United Kingdom 63Administrator Carol Browner, EPA, United States 66Executive Secretary Gerald Hintereggcr, UN/ECE 69

Concluding Statements byFederal Councillor Ruth Dreifuss, Switzerland 73Vicc-Ministcr Branimir Natov, Bulgaria 75

PART III: Press Release, Documents, Participants

Press Release 77List ol Conference Documents 79List of Participants 82

Annex: Non-English Versions of the Ministerial Declaration and the Executive Summary

III

PART I

Ministerial Declaration

and

Executive Summary

April 30th, 1993

Declaration

by the Ministers of the Environment of the region of the United NationsEconomic Commission for Europe (UN/ECE) and the Member of theCommission of the European Communities responsible for the Environment

THE POLITICAL DIMENSION OF THE PROCESS "ENVIRONMENT FOR EUROPE"

1. We are determined to intensify our cooperation in the field of environmental

protection in Europe, to assume our responsibility on the global level and to

offer our partnership to the other regions of the world. We will work to

ensure that actions within one country do not have adverse environmental

effects in others. We will endeavour to mitigate above all those environmental

problems which affect human health.

2. We will work together more closely at regional, subregional and bilateral levels

to preserve our natural heritage and to prevent the degradation of our

common environment. We are determined to preserve ecological and

cultural diversity, to save threatened species, and to rehabilitate depleted

areas and ecosystems in our region.

3. Our cooperation towards convergence of environmental quality and

policies in Europe represents a strong integrating force and provides one of

the corner stones for the construction of the new Europe. In pursuing this

cooperation, and aiming at peace, stability and sustainable development,

we are acting on the basis of the decisions and recommendations of the

Conference on Security and Cooperation in Europe (CSCE) and the United

Nations Conference on Environment and Development (UNCED) processes;

we supplement and enhance the cooperative efforts within existing international

fora and environment conventions; and we involve in this cooperation all levels

of government and the informal sectors.

Ministerial Conference. Lu/.ern. 28th - 3<)lh April. 1993

PREPARATIONS FOR THE LUZERN CONFERENCE

4. The ministerial conference "Environment for Europe" at Dobris Castle in June

1991, which built upon the 1990 conferences of Bergen and Dublin, called for

an Environmental Action Programme for Central and Eastern Europe , a

Report on the State of the Environment in Europe to be completed before

the end of 1993, and a longer-term Environmental Programme for Europe.

5. Preparatory work has been undertaken on all these issues in a comprehensive

and coordinated preparatory process by governments, the Commission of the

European Communities, international organisations and financial institutions,

and informal sectors. Our conclusions on the specific items are as follows:

ENVIRONMENTAL ACTION PROGRAMME FOR CENTRAL AND EASTERN EUROPE

6. We endorse the broad strategy, with its principles and general priorities,

contained in the Environmental Action Programme for Central and Eastern

Europe (EAP) as a basis for action by national and local governments, the

Commission of the European Communities and by international organisations

and financial institutions and private investors active in the region.

7. The EAP represents a consensus on a broad approach based on three main

pillars:

- the integration of environmental considerations into the process of

economic reconstruction to ensure sustainable development;

- institutional Capacitiy building, including an efficient legal and

administrative framework as well as managing capacity, training and education;

- immediate assistance programmes comprising actions, which bring

immediate or short term relief to regions where human health or natural

ecosystems are severely jeopardized by environmental hazards, taking into

account also transboundary environmental problems. The EAP also offers

illustrative investment projects for priority areas.

Ministerial Conference. Luzem. 2Hth - 30th April. 1993

8. Economic transformation in Central and Eastern Europe should have a

positive impact on many aspects of environmental quality. However, there

will still be areas where pollution affects human health, where ecosystems are

at risk of suffering irreversible changes, or where the economic costs of

environmental damage are very high.

The EAP outlines how these priority problems may be addressed in a cost-effective manner, drawing on the experience of past and current programmes

and offering proposals for reinforcing or reorienting ongoing programmesand improving their coordination. It emphasizes the need for internationalcooperation through various forms, including investments and jointventures, for the facilitation of the transfer of environmentally soundtechnologies, and for the move towards applying international standards,bearing in mind economic and financial problems as a result of the transition to

a market economy.

9. We firmly support the implementation of the broad strategy contained in the

EAP in a spirit of partnership.

9.1. Governments of Central and Eastern Europe will undertake essential policy

and institutional reform as well as, in accordance with their priorities and

capabilities, providing resources for actions and priority investments, while

Western governments, the Commission of the European Communities

and international organisations and financial institutions will continue and

intensify their support for the reforms and for specific priority projects and

programmes.

9.2. This partnership should include cooperation between different levels of

government, local authorities, local financial institutions, private industry,

and the indispensable participation of the informal sectors. We will

therefore encourage and promote active participation by the informal

sectors, including the major groups mentioned in Agenda 21, through, to

begin with, regular dissemination and discussion of information relating to the

implementation process.

9.3. We note the adoption of Guiding Principles on the Environment, Industry

and Investment Decisions in Central and Eastern Europe at the Budapest

Conference of November 1991.

Ministerial Conference. Luzem. 28th - 30th April. 1993

9.4. We call for the strict application of environmentally sound standards and

requirements in all assistance to Centra! and Eastern Europe by governments

and international organisations and financial institutions.

10. We firmly endorse the establishment of an effective process to implementthe EAP and monitor and review the implementation by taking the following

steps:

10.1.We are committed to expanding investments and promoting projectoriented action to improve the environmental situation in Central and Eastern

Europe. We plan to pursue this goal through strengthening the relationship

between donors, international financial institutions, and Central and Eastern

European countries.

By launching an immediate action programme we are therefore establishing a

framework to facilitate the project preparation and investment process. Itsobjectives will be to strengthen the linkage between donors, internationalfinancial institutions and Central and Eastern European countries, and

facilitate the mobilisation of resources for the region, for the purpose of

investment and helping channel new and existing resources into the region.

We call for the establishment and/or strenghtening of national and local

bodies, for the identification, preparation and implementation of investment

projects, as appropriate. We welcome the establishment of a Project

Preparation Committee (PPC) composed of significant donors contributing to

the project preparation framework, and the international financial institutions,

with the full participation of the Central and Eastern European countries, as

appropriate. The PPC will disseminate regular information on its activities to the

UN/ECE member states.

A small staff, using existing resources, will be made available to support the

work of the PPC for a period, after which time the PPC will determine its future

needs for staff support.

The PPC will help to provide feasibility studies leading to concrete investment

projects; it will identify possible sources of financing for small projects as well

as large capital intensive projects, including private sector projects. The PPC

will take into account efforts withing the wider context of EAP-

implementation to develop the capacity in Central and Eastern European

countries to elaborate project proposals.

Ministerial Conference. Luzern. 28th - 30th April. 1993 4

We welcome the initiative by individual countries and the European

Communities to participate in this process by setting aside specific funds for

this purpose and the preparedness of international financial institutionsactively to support this process.

10.2. Existing information systems on resource flows will be streamlined in order

to provide an improved data base covering all the countries in transition

covered by the EAP. The UN/ECE, the OECD and the Commission of the

European Communities in cooperation with UNEP, UNIDO, the World Bank and

EBRD will make coordinated proposals to the follow-up process by theend of the year.

Special efforts will be made to disseminate information on resource flows

within recipient countries through local information units and

publications. Western assistance would be particularly useful in this regard,

given the lack of experience with such approaches in Central and Eastern

Europe.

10.3. Mechanisms for coordinating assistance to countries in transition covered

by the EAP will be strengthened on the basis of proposals from thepreparatory process, including those contained in paragraph 10.1.

10.4. All the partners concerned undertake to review the implementation of the

EAP as appropriate, inter alia through environmental performance reviews, and

they will maintain the EAP as an evolving document to be developed in the

light of experience, and to be adapted to reflect the specific circumstances of

individual countries.

11. Transboundary pollution causes increasing damage to ecosystems, forests,

soils, watercourses, lakes and manmade structures. We call for actions and

programmes under the EAP which address both local and transboundary

problems comprehensively, including appropriate and timely investments and

taking due account of relevant international conventions. The potential for

realizing synergy effects in combatting local and transboundary problems

should be fully used. Further, we call for completion of the second sulphur

protocol under the Convention on Long-Range Transboundary Air

Pollution.

Ministerial Conference. Lu/.crn. 2Xih - 30th April, 1993

BIODIVERSITY CONSERVATION

12. We welcome the initiative for a European Year of Nature Conservation in

1995, and we endorse the report by the Council of Europe on "Nature

Conservation in Europe. An Overall Strategy on a Continental Scale: Some

Important Aspects" as an important basis for discussion.

13. The Council of Europe, in cooperation with the IUCN, UNEP, the EC

Commission and interested governments and organisations, will pursue

activities related to protected areas, promoting the development of methodsfor the sustainable use of natural resources, model legislation and pilot

projects to promote sustainable tourism, including education and training.

14. We call, within the context of the EAP, for more detailed analysis and proposals

for the conservation and the sustainable use of biological and landscapediversity, especially in the form of site based model projects and institutional

strengthening, leading to practical action on the ground.

REPORT ON THE STATE OF THE ENVIRONMENT IN EUROPE

15. We endorse the progress report on the European State of theEnvironment Report. This Report will become available to governments at the

end of 1993 and will serve as the basis for the further development of the

Environmental Programme for Europe (EPE). It will be considered at our next

Ministerial Conference.

ENVIRONMENTAL PROGRAMME FOR EUROPE

16. We endorse the report by the Senior Advisers to ECE Governments on

Environmental and Water Problems (SAEWP) on "Elements for a Long-Term

Environmental Programme for Europe (EPE)".

17. We call for the development, in so far as appropriate, of the European

Environment Agency into a European instrument for coordinated data

collection and analysis, as soon as possible after it has formally been

established by the European Communities.

Ministerial Conference, Luzem, 28th - 30th April, 1993

18. While we reaffirm our commitment to the Polluter Pays Principle, as contained

in Principle 16 of the Rio Declaration, we acknowledge that the special

situations of the CEE countries during their transition to market economies

must be taken into account in the application of this principle. We call for more

intensive efforts to develop and use innovative policy instruments forenvironmental management, including the prevention of manmade

environmental disasters. Specifically:

15.1. We call for further exploration by the OECD, in cooperation with the UN/ECE,

of ways and means to facilitate a wider use of economic and fiscalinstruments in the UN/ECE region and for elaboration of concreterecommendations on how to achieve this.

18.2. We call for appropriate consideration of burden sharing to assist countries in

executing projects under the Environmental Action Programme and in

achieving objectives under the protocols to the Convention on Long-Range

Transboundary Air Pollution, and within the flow of financial resources to

Central and Eastern European countries. In the context of the sulphurprotocol under development, we encourage the Executive Body of theConvention to examine, if appropriate, the possible application of newinstruments aimed at facilitating the mobilisation of resources. Interested

governments will pursue consultations on this issue with relevant institutions,

as appropriate.

18.3. We welcome the emerging consensus on the importance of coordinating the

use of economic and fiscal instruments, including those aimed at reducingCO2 emissions, with a view to ensuring an efficient effort. We appreciate the

steps already taken in this respect and we call for decisions, as soon as

possible, on such measures in the European Community and its member states

and all the other industrialized countries, taking into account the particular

conditions and policies in individual countries. The European delegations urged

timely decisions to introduce as soon as possible taxation that leads to an

effective limitation in CO2 emissions and to an improvement in theefficient use of energy.

19. In view of continuing grave concerns about unsafe nuclear installations,almost seven years to the day after the Chernobyl accident, we strongly

support the G-7 multilateral programme of action, and other international and

national programmes, on operational safety, technical improvements to plants

based on safety assessments, and strengthening regulatory regimes.

Ministerial Conference. Lu/crn, 2Xth - 30th April. 1993 7

Additional support by other OECD countries to the G-7 programme isrequired and will be welcome. This should be accompanied, through

enhanced international cooperation, by phasing out as soon as possibleunsafe nuclear installations, in particular unsafe nuclear reactors, promotingmore efficient use of energy, developing new and renewable sources ofenergy and enhancing prompt and effective responses to environmental

emergencies in this context.1)

20. We call for early completion of the negotiations of the European Energy

Charter Treaty and the related protocols on energy efficiency and

environmental aspects of energy systems.

21. The UN/ECE will expand the scope of its Energy Efficiency 2000campaign, resources permitting, to emphasize the role of energy efficiency

measures and renewable energy sources for the reduction of greenhouse gas

and acidifying substance emissions; and to identify opportunities for developing

energy efficiency standards and labelling.

22. We call for intensified cooperative efforts to strengthen tools andmechanisms of monitoring, compliance and enforcement ofenvironmental law and policy. In particular:

22.1. The OECD Country Environmental Performance Review Programme will be

developed and gradually extended, in cooperation with the UN/ECE, to Central

and Eastern Europe, initially through three pilot reviews of Poland, Bulgaria and

Belarus.

22.2. We call for the elaboration of proposals by the UN/ECE for legal, regulatory

and administrative mechanisms to encourage public participation in

environmental decision making, and for cost-efficient measures to promote

public participation and to provide, in cooperation with the informal sectors,

training and education in order to increase the ability of the public to understand

the relevance of environmental information.

Austria, Iceland, Ireland, Luxemburg, Norway and Sweden would have preferred to include in

this paragraph the following sentence:

"The use of nuclear energy in general should be phased out in the long term."

Ministerial Conference, Lu/.ern. 2Xlh - 3()lh April. 1993

22.3. We call for the development by the OECD in cooperation with the UN/ECE,

UNEP and other relevant international organisations taking forward the

activities already undertaken in this field, of an integrated approach topollution prevention and control.

23. We endorse the report on International Legal Instruments of 2nd April 1993,

which calls for effective monitoring as well as improvement of the

implementation of and compliance with, international legal instruments in the

field of the environment.

23.1. We urge Contracting Parties to environmental conventions in the UN/ECE

region, where appropriate, to cooperate within the respective governing bodies

of those Conventions to work towards non-compliance regimes which:

- aim to avoid complexity;- are non-confrontational;

- are transparent;

- leave the competence for the taking of decisions to be determined by the

Contracting Parties;

- leave the Contracting Parties to each convention to consider what technical

and financial assistance may be required, within the context of the specific

agreement;

- include a transparent and revealing reporting system and procedures, as

agreed to by the Parties.

23.2. We urge the Contracting Parties to environmental Conventions in the

UN/ECE region to cooperate within the respective governing bodies in taking

appropriate steps to:

- improve knowledge of the objectives and obligations of environmental

Conventions in the UN/ECE region;

- assist governments in building the necessary administrative and legal

structures, including enforcement and implementation mechanisms, inter alia

by initiating or pursuing the elaboration of guidelines, assisting where

requested with the drafting of legislation, and by providing for the exchange

of legal and technical experts;

- facilitate regular participation in meetings by representatives of countries in

transition;

- supply all relevant information with regard to implementation without

necessarily being required to do so.

Ministerin! Conference. Lu/crn, 28th - 30th April, 1993 9

24. We call on all UN/ECE member States and the European Community to

consider ratification of or accession to, as appropriate, environmental

conventions in the UN/ECE region, as soon as possible.

THE PROCESS "ENVIRONMENT FOR EUROPE"

25. We gratefully acknowledge the offer of the Government of Bulgaria to host

and prepare our next Ministerial Conference in 1995. Governments have

indicated that they will provide the necessary support for the Government of

Bulgaria.

The Government of Bulgaria will establish an internationally composed

organizing committee.

The agenda of our next meeting will include: a review of the implementation

of the Environmental Action Programme including Nature Conservation; and

the further development of the Environmental Programme for Europe, both by

reviewing the progress of the work on the initial elements and by intensifying

our cooperation in other areas, such as transport and the environment,

transboundary air and water pollution, or human settlements.

26. The Senior Advisers of ECE Governments on Environmental and Water

Problems (SAEWP) will establish an ad-hoc working group of seniorofficials. The Commission of the European Communities, international

organisations and financial institutions, UNEP, and the international informal

sector organisations active in the UN/ECE region will be invited to participate.

The working group will serve as the central coordinating body for the further

development of the process "Environment for Europe". It will oversee the

follow-up to the Luzern Conference and the substantive preparations of

our next Ministerial Conference. In particular, it will pursue the further

development of the Environmental Programme for Europe on the basis of

the State of the Environment Report for Europe to be published before the end

of 1993.

27. A Task Force established by the Ministers and co-chaired by the

Commission of the European Communities, together with a Central and

Ministerial Conference. Luzern, 28th - 30th April, 1993 10

Eastern European country on a rotating basis, and with the OECD as the

secretariat, actively supported by the World Bank and the EBRD, and with

participation of interested governments and other international organisations

and financial institutions will facilitate the implementation of the Environmental

Action Programme for Central and Eastern Europe. A way should be found to

involve the informal sector in the process, and the OECD will make

proposals on the appropriate mechanisms, including reporting mechanisms.

The Task Force, in pursuing its institutional and policy work, will liaise with the

Project Preparation Committee concerning investments coordinated through

the Project Preparation framework. The Task Force will facilitate support for

national and local project preparation and investment bodies.

28. The Council of Europe, in cooperation with IUCN and other relevant

international, governmental and non-governmental organisations, will pursue

the implementation, review and adaption processes in the field of Nature

Conservation.

29. Progress reports from these and other relevant preparatory efforts will be

submitted to the Ministerial Conference through the ad-hoc working group ofsenior officials as the central coordinating body referred to in paragraph 26.

Ministerial Conference. Lu/crn. 2Xth - 30th April, 1993 11

Statement concerning the Ministerial Declaration by

the delegation of

AUSTRIA

Austria acknowledges the substantive work done on the text of para 19 as it isnow contained in the Ministerial Declaration. We can give our full support to all theelements contained in that text.

We are specifically in support of the following wording: "phasing out as soon aspossible unsafe nuclear installations, in particular unsafe nuclear reactors". We alsostrongly support all efforts not only for the promotion but also for the realization ofenergy efficiency as well as the increased use of renewable energy and we thereforeconsider them as cornerstones of the necessary restructuring of energy policy. It isquite clear to us that such substantive changes of energy policy - necessary not onlyin our region, but indeed globally - cannot be achieved overnight. We are convincedhowever that such changes are necessary and can be achieved.

However, as much as we subscribe to the text of para 19, as it stands now, wewere not able to accept it without expressing our general concern in the use ofnuclear energy, which we have entered in the course of negotiations. Austria has inthe year 1978 decided, by referendum, to abandon the use of nuclear energy.Austria has also been one of the countries which have been particularly exposed toeffects of the Chernobyl disaster. Austria therefore is firmly committed to its strategyof the creation of a nuclear energy free zone in Central Europe.

Austria, therefore, in trying to find a compromise accepted the version of theMinisterial Declaration with the reservation on para 19 foot-note "The use of nuclearenergy in general should be phased out in the long-term".

We would also request that this declaration be annexed to the records of thisconference.

Ministerial Conference, Luzern. 28th - 30th April. 1993 , 12


the delegation of

Belgium

My delegation is very pleased with the significant results obtained by thisconference.

The Ministerial Declaration which we have just adopted by consensus bears witness,among other things, to a remarkable will to safeguard a fair balance between thelegitimate demands of countries in transition and the necessity of maintaining a high-quality environment which is alone capable of meeting the needs of futuregenerations.

However, my delegation would like to formulate a number of brief remarks on thefollowing points:

1. As we have already stated, the mechanism for implementing the ActionProgramme for the countries of Central and Eastern Europe should be managed in atransparent way and should not lead to the exclusion of donor countries from thedecision-making process - as might be understood from paragraph 10.1 whichreserves the preparation of the projects to a few important donors.

2. Belgium welcomes the conclusions of the report of the Council of Europe onnature conservation but nevertheless expresses some reservations on the definitionand feasibility of some of the projects listed in the annex of the report.

3. Having in view the criterion of sustainable development which was universallyrecognised in Rio de Janeiro, although conscious of the difficult economic realitieswith which countries in transition are confronted, Belgium remains firmly attached tothe "polluter-pays" principle as defined by the Stockholm Declaration and reaffirmedlast year in Rio. Indeed it considers that it is in the interest of no country, whateverits present economic difficulties, to waive this principle.

We are of the opinion that it is preferable to initiate an economic strategy on anecologically sound base rather than to be forced to impose strict regulations whichgenerally involve substantial additional costs for the enterprises concerned at a laterdate when environmental damage has become glaring.

Madam President, I would like to thank you for having allowed me to make theseobservations which are elicited by our fear that certain passages of the LucerneMinisterial Declaration might be interpreted in a minimalist fashion.

This is a declaration which, taken as a whole, by reaffirming the necessaryintegration of the environmental component in general strategies for socio-economicdevelopment, marks an important stage in protecting and restoring the Europeanenvironment.

Ministerial Conference. Lu/.em. 28th - 30th April. 1993 13

Statement concerning the Ministerial Declaration

by the delegation of Denmark on behalf of the

European Community

The member states of the European Community and the Commission declare thatthe terms of para 17 of the Ministerial Declaration do not in any way entail amodification of the Regulation establishing the European Environment Agency.

Ministerial Conference. Luzern. 28th - 30th April, 1993 14


the delegation of the

Informal Environment / Development Sector

On behalf of the 90 NGO-delegates coming from 36 European countries I wouldlike to summarize their opinion on some of the points discussed on the Luzernmeeting. NGOs welcome the emphasis that has been given in this process to theimportance of working closely together with the informal sectors on environmentaland biodiversity issues. And especially we appreciate the positive position of theCanadian delegation.

1. NGO representatives share the feeling that this conference is a turning point ofthe pan-European environmental process. It contributes to a more specific definitionof priorities. Now national governments have to draft their own schedule ofinitiatives to deal with the most serious environmental problems as well as toallocate financial sources to furnish these initiatives.

However, your decisions made here, in Luzern, might either facilitate theimplementation of the efforts to create a more sustainable world, or delay the paceof the process. We hope that the good will expressed here will not allow the latter;and will be strong enough to overcome the serious barriers to theimplementation phase.

2. Although efforts were made to set up an implementation scheme for theagreements of the conference, there are no concrete deadlines to evaluate the firstand the medium stages of the implementation before the next conference in Sofia.

3. Concerning the Environmental Action Programme for CEE, the lack of concretearrangements of assessment of implementation will be crucial, the fact given thatthe public in general in these countries as well as their respective business andNGO communities have very little information about the content of the program.For this reason NGOs will elaborate their independent assessment of EAP and willattempt to make the public aware of its content and its general and nationalperspectives. The implementation bodies, as they are - although rather vaguely -outlined in paragraph 10 of the Ministerial Declaration, should support efforts andundertake steps of their own to facilitate public participation in the EAP. Burdensharing for the implementation costs may prove to be a necessary policy.

4. At the same time the NGO community is concentrating efforts on themissing or not properly adressed items on the ministerial agenda: human valuesand life style, biodiversity, nuclear energy, concrete carbon-energy tax proposal,transport and especially waste.

5. NGOs are confident that environmental problems should be regarded both asglobal and pan-European ones. Given the emphasis made on CEE countries duringthe conference, NGOs warn that not only Central and Eastern Europeancountries but Europe as a whole requires an Action Plan. Joint European

Ministerial Conference, Luzern. 2Sth - 30th April. 1993 15

environmental efforts should not be placed second in the agenda, and the westerngovernments are to develop their own sustainable development initiatives.

6. Managing bodies for the Environment for Europe process, as they wereforeseen in paragraphs 26 and 27 of the Declaration, should follow the patternsdeveloped by Luzern conference preparatory stages, involving the informalsectors.

7. The Luzern conference can make a difference if it does not allow the processstarted in Rio to slow down; if it builds on the Agenda 21, and also ensures the jointresponsability of the European countries for our common future.

Personal comment:

The concrete cooperation and communication these last weeks and months andhere at Luzern is as such a concrete step forward in laying the basis for convergenceof environmental policies towards sustainiblility.

I do hope that the open and flexible process goes on. As it can respect thedifferent situations in the involved countries, the variety of life, it has the chance to bea fruitful process.

The NGOs in any case will try to further develop this process.

Theresa Herzog-Zimmermann

Luzern, 30. April 1993

Ministerial Conference. Luzem. 28th - 30th April, 1993 16

ENVIRONMENT FOR EUROPE

ENVIRONMENTAL ACTION PROGRAMMEFOR CENTRAL AND EASTERN EUROPE

EXECUTIVE SUMMARY

•L,

INTRODUCTION

The Environmental Action Programme (EAP) has been developed in response toa call by Ministers from east and west at their 1991 Conference, and in the spirit ofthe United Nations Conference on Environment and Development (UNCED).Despite efforts by Central and Eastern European (CEE) countries to tackleenvironmental problems, sometimes with international assistance, there are still anumber of serious environmental problems which require immediate and urgentaction.

This Executive Summary presents an overview of the Action Programme anddescribes the main features of the broad strategy and action framework that theProgramme represents. This strategy is based on a "three-legged" approach ofpolicy reform, institutional strengthening and investment. The Action Programmeillustrates a range of actions that could be taken to implement this strategicapproach. The Programme concentrates on short-term, immediate action, butensures that these actions are consistent with longer-term economic, social andenvironmental objectives.

WHY AN ENVIRONMENTAL ACTION PROGRAMME?

The resources available for environmental improvement in the countries of Centraland Eastern Europe, including the Former Soviet Union, will be severely constrainedover the next 5-10 years. The costs of meeting some environmental objectives will,however, be very high. The Environmental Action Programme provides a frameworkand guide for identifying the highest priority problems; and for developing realistic,efficient and cost-effective solutions. It is intended as a basis for each country inCentral and Eastern Europe to set its own national environmental priorities, and toimprove and promote cooperation between and among Eastern and Westerncountries.

The main constraints to implementation arise from a general lack of financial andabove all institutional capacity rather than from issues that are specific to particularenvironmental problems or potential solutions. Hence the most urgent problems willonly be solved if clear goals are established at the outset and the most efficient wayto achieve each goal is identified. This appraisal of priorities, risks and benefits is anessential prerequisite for a sustainable development strategy which identifiesinvestments and policies in support of a socially and ecologically sound objective,thus avoiding the need for costly remedies ex post.

Ministerial Conference. Lu/.ern. 28th - 30th April. 1993 17

Some of the most significant environmental improvements will be achievedthrough so-called "win-win" policies and investments: these can be justified entirelyon economic grounds, but also entail substantial environmental benefits.Improvements in energy and other resource efficiency are good examples.

THE MAJOR ENVIRONMENTAL PROBLEMS - CRITERIA FOR SETTINGPRIORITIES

Priorities should reflect the urgency and importance of environmental concerns.Setting environmental priorities involves making difficult choices.

The damage to human health caused by poor environmental quality is the firstconcern in the region - as was the case in the West when major environmentalhealth threats were first addressed. Initial evidence suggests that the following typesof environmental pollution have affected human health (and also causing economicdamage) in particular areas in CEE:

• Lead in Air and Soil from lead and zinc smelters andfrom transport;

• Airborne Dust from household furnaces, small-scaleenterprises, power and heating plants, metallurgicaland other large plants;

• Sulfur Dioxide and other Gases, especially incombination with dust.

Other important health impacts arise from:

• Nitrates in water from inadequatelymaintained/designed feed lots and agriculturalenterprises, inappropriate fertilizer application, andrural septic tanks;

• Contaminants in food and water, especially whereheavy metals or toxic chemicals threaten drinkingwater supplies either directly or through poor disposalof hazardous/nuclear waste.

But human health is not the only criterion to set priorities. In certain areas, thefollowing are of major significance in the entire region:

• productivity losses caused by damage or destructionof physical capital and natural resources; and

• the deterioration of or threat of irreversible damage tobiodiversity in general, and in particular to wetlands(lakes, reservoirs, rivers), grasslands, coastal andmarine ecosystems, forests and mountain habitats.

Ministerial Conference. Luzem. 28th - 30th April, 1993 IX

Finally, priority might also be attached to low-cost/high gain measures to addressissues of growing importance in the medium-to-long term and where there may be along lead time to effect changes (e.g., transport).

Each CEE country must decide how the resources can be best allocated toremedy the problems that it regards as having the greatest priority, bearing in mindthat the above problems have been generally recognized as the most seriousconcerns in Central and Eastern Europe.

The scarcity of resources does not just imply that environmental investmentsshould be scaled down. Rather, the benefits of broad economic policies should becaptured, and a judicious mix of different technologies, management, institutions,and policy approaches applied. An important question that should be asked is: "Howmuch environmental improvement can be achieved at different costs?" The answerwill provide the flexibility to achieve the best result for the available resources.

Establishing priorities involves a combination of the following complementarymeasures:

• better economic and environmental policies;

expenditures that are carefully targeted to projectswith high benefit to cost ratios; and

• institutional development and capacity building,including training, education, and exchangeprograms.

These are described in the following sections.

POLICY REFORMS

Economic Policies. The transition from central planning to a market economyshould not only improve the countries' economic performance in the longer term, butwill contribute to environmental improvements by penalizing the massive waste ofresources - and the resulting pollution -- which characterized production in the past.Among the key factors that can bring about economic and environmentalimprovements are restrictions on access by enterprises to government money ("hardbudget constraint"), and removal of subsidies on natural resources such as energy,minerals, or water. Many CEE countries have already made major strides inreducing energy subsidies. These efforts should be - and are being - continued.

Declining economic activity has brought substantial reductions in emissions.Market reforms should allow these environmental improvements to be sustained orextended over the next decade by promoting a shift towards less resource-intensiveand cleaner activities and technologies. As the industrial capital stock is renewed,emissions of most air pollutants ~ other than those associated with traffic -- can bekept stable or even reduced until 2010 even with quite rapid economic growth.However, emissions of water pollutants will be less affected by industrialrestructuring because of the dominant contribution of agriculture, households andservices, so that the focus of attention will shift from air to water in the longer term.

Minisiciial Conference, Lu/eni, 2Xlh - 30th April. 1993 19

In certain instances, it may be appropriate to provide incentives for environmentalinvestments by the private sector, such as those that have the greatest potential toreduce major threats to human health or natural ecosystems. However,environmental investments that are made in the industrial and energy sectors shouldbe consistent with least cost planning and policy objectives, and private sectordecision-making. More generally, the integration of environmental requirements inthe design of sectoral policies is a key factor in environmental improvement.

Targeted environmental policies, including a judicious mix of regulations andeconomic instruments, will be required to ensure that the potential benefits ofeconomic restructuring are fully realized. For example, while removal of energyprice subsidies will bring about a reduction in energy use and hence pollution levels,pollution charges can complement these policies by promoting the use of cleanerfuels and technologies.

To achieve the most cost-effective use of resources, economic instruments, suchas charges and taxes, should be applied where appropriate. Existing CEE systemsof pollution charges can be developed further to provide an effective incentive forsound environmental practices. There is scope for large savings in achievingenvironmental objectives by applying simple market type approaches which arerealistic even in the current economic and institutional situation. There is alsoconsiderable scope for reconciling environmental and fiscal policies.

As far as regulatory measures are concerned - for instance to control emissionsof heavy metals and toxic chemicals -- CEE governments should introduce aframework of standards and requirements such as, where appropriate, that adoptedwithin the EC or an equivalent phased system like those in effect in the UnitedStates, Canada, or other OECD countries. Many internationally accepted standardsare being reviewed in light of experience with the aim of improving their efficiency.The framework of standards adopted by CEE countries should provide for thephased implementation of increasingly stricter emission limits which, over a 10-20year period, would approach the internationally recognized standards that will be ineffect at that time. Enterprises should be given a well-defined period to comply withnew standards which should be strictly enforced. For this reason, both economicinstruments and regulatory measures should be accompanied by strong monitoringand institutional enforcement capacity to ensure their effective implementation.

Ambient (i.e., immission) standards should be used as part of a decisionframework to guide policy making at the local level. Appropriately set, ambientstandards reflect environmental and economic sustainability criteria. In addition, theefforts of several CEE countries to apply biodiversity conservation standards shouldbe recognized and expanded.

Old and new enterprises. Conflict between economic, social and environmentalconsiderations is inevitable, especially when the resources available to mitigate thesocial or environmental consequences are so limited. Some old and highly-pollutingplants will be allowed to continue operating because of the large social costs ofclosure. Even so, it is possible to insist that such plants improve their environmentalperformance without committing any significant amount of investment.

Ministerial Conference. Luzem. 28th - 30th April, 1993 20

Large gains can often be achieved by simple "good housekeeping" measures --better maintenance, repairing leaks, installing better controls, insisting on stricterstandards of plant and process management. These are all highly cost-effective"win-win" actions which will improve the economic results of enterprises as well aslessen the environmental damage that they cause. Such small-scale actionsunderpin the environmental improvements from economic policy transformation.They are essential because much of the large-scale introduction of cleanertechnologies in different industrial sectors may not occur until new markets for thedifferent products have been identified, and the economic viability of specificenterprises is assured.

Thus, it is crucial that governments not direct all of their resources - human aswell as financial - towards new investments or enterprises, since remarkableimprovements can be made if the managers of old plants are put under pressure tomake continuous improvements and are rewarded appropriately for above averageperformance. Evidence suggests that the greatest contribution to achieving acontinuous decline in total emissions in the short to medium term is likely to comefrom improving the environmental performance of old plants which continue tooperate. Moreover, to achieve conditions equivalent to those in Western Europe,emissions per unit of output equivalent to those obtained by applying Best AvailableTechnology (BAT) would, for the purpose of immediate improvement, only berequired in some of the worst "hot spots" and only for some pollutants.

Privatization. Ministries of Environment should work with Ministries of Finance,Industry and Privatization, as well as Health and Social Security, to ensure thatenvironmental considerations are built into decisions about which plants orenterprises in the public sector should be closed and which should be allowed tocontinue to operate. By affecting the pattern of closures and the conditions whichmust be met before plants receive assistance to support their continued operation,the environmental authorities can have a significant impact on the damage causedby old plants at a low cost.

Privatization can assist the changes promoted by market reform. Governmentscan both expedite privatization and facilitate environmental progress by establishingclear rules assigning liability for past environmental damage, and by holding the newownership of enterprises accountable for all current emissions. In many cases, thegovernment must be willing to assume responsibility for past damage, but there area variety of ways of structuring that responsibility to provide protection both for thegovernment and for the environment. Environmental audits -- which can be carriedout without causing significant delay - should be conducted to separate past fromon-going pollution. Where privatized enterprises are out of compliance, theenforcement of stricter emission standards should be carefully phased in.

The transition from central planning to markets may result in irreversible effects onthe rich biological and landscape diversity in part of Central and Eastern Europe.CEE countries could be supported through existing international conventions andagreements in their efforts to identify networks of areas of high natural value, todevelop policy for protection and sustainable use within the transition process, and toensure a sustainable, environmentally-sound use of privatized land. Short-termassistance in the provision of extension services in agriculture and forestry,legislation and integrated planning are required to prevent the kinds of developmentsthat have occurred in Western Europe.

Ministerial Conference. Lu/ern, 28th - 30th April, 1993 21

IMMEDIATE INVESTMENT PRIORITIES

In the long term, market reform -- especially industrial restructuring -- incombination with appropriate environmental measures, will take care of a large partof the emissions causing health and economic damage in the region. This will occuras alternative sources of employment are found for workers in economicallyinefficient and polluting industries which need to be closed, and as economic activitypicks up and viable enterprises can afford to invest in new technology.

In the short term, however, public investment is warranted:

• to speed up the process of environmentalimprovement where there are social and economicconstraints (heavily polluting enterprises are notclosed, households cannot quickly respond toincreased energy prices and cannot easily shift fromcoal to cleaner energy sources, etc.); and

• to begin to address environmental problems that willpersist after the transition to a market economy (e.g.,air emissions from mobile sources).

New environmental investments should only be carried out if the following threecategories of expenditures are adequately addressed: recurrent cost financing foroperation and maintenance (especially at the municipal level), environmentallybeneficial expenditures which can be justified on economic grounds, and institutionbuilding:

• Operation, maintenance, repair, and selectedrehabilitation of existing public environmentalservices. Safe drinking water, collection anddisposal of municipal waste, well-functioning publictransportation systems, and the monitoring of thedisposal of hazardous, toxic and nuclear wastes areall vital concerns. These require funds to coverrecurrent costs; but they should generally not, in theshort run, require major new capital investments.

• "Win-win" investments. Small investments (oftenless than $0.5 million) in energy,, and waterconservation -- metering, reducing leakages - , low-input and low-waste technologies, and above allexpenditures on "good industrial housekeeping" andminor plant improvements which reduce spills, leaksand material use. These are all investments whichare justified on economic and financial grounds alone,but which also have major environmental benefits.

Ministerial Conference. Luzem. 2Xth - 30th April, 1993 22

• Institution building. Different levels of governmentneed to continue to build up a solid financial and taxbase to ensure the availability of funds for meetingrecurrent costs; industrial managers should be trainedin better management practices; and institutions needto be developed that can in the future make well-informed decisions such as on water-relatedinvestments in a river basin framework. Effortsshould also continue in promoting environmentaltopics in school education, and in supporting workertraining programs.

Environmental Investments. Once these measures are assured, the prioritycategories for short-term domestic environmental investments are:

• Immediate investments to address the mostserious health problems. In areas with poor airquality, the initial priorities should be better dustcontrols for non-ferrous (lead, zinc, copper,aluminum) smelters and steel plants, and the use ofcost-effective cleaner fuels in district heating plantsand households. With regard to water quality, thepriorities are pre-treatment of industrial wastewater,where heavy metals or toxic chemicals threaten thequality of ground or surface waters, and measures toreduce excessive levels of nitrates andmicrobiological contamination in rural drinking watersupplies. For hazardous wastes, the priority must beto ensure that leachates from disposal sites do notcontaminate ground or surface water sources.

• Measures to deal with problems particular todifferent countries. These include wastewatertreatment to protect valuable coastal, ecological andtourist resources, the phased completion ofincomplete wastewater treatment plants whereappropriate and where this will have the most impacton water quality, and programs to prevent irreversibledamage to and loss of productivity in importantecosystems on domestic and transboundary levels.

• Support to reinforce and accelerateenvironmental investments by enterprises inresponse to environmental policies, such as forthe reduction and treatment of saline water and otherdischarges by mines, industrial wastewater treatmentin pulp, textile, metallurgical and chemical plants, andfor measures to reduce discharges of toxic materialsfrom chemical and petrochemical plants.

Ministerial Conference. Luzem, 2Xth - 30th April. 1993 23

Low cost measures to address long-termenvironmental priorities where prompt action canavoid the need to spend much larger sums in thefuture. Improved transport management, phasing outleaded gasoline and reducing vehicle emissions,formulating and applying practices for sustainableagriculture and tourism, applied research on theprotection of threatened species and ecosystems,and the development of systems to collect, interpretand disseminate environmental data all fall into thiscategory.

REGIONAL AND GLOBAL CONCERNS

The central element of a strategy to address regional or global problems of air andwater pollution must be to build, as far as possible, on the overlap between the localand the transboundary impacts of measures to reduce emissions.

Air Pollution. Market reforms and targeted policies or investments to meetdomestic environmental goals will lead to large reductions in emissions of regionaland global air pollutants. In considering further reductions in the CEE countries tomeet regional and global concerns, donors may wish to contribute towards measuresto accelerate the necessary reductions. There might be scope for mutually beneficialagreements which could result in larger reductions in environmental damage thancould be obtained by spending the same resources domestically.

Water Pollution. Maximizing the joint domestic and transboundary benefit ofimproving water quality implies that resources need to be directed to reducing theflows of nutrients and emissions of harmful substances from agricultural, domesticand industrial sources (including dumping sites for radioactive waste) to bring aboutthe overall reduction of contaminants in coastal and estuarial locations. The BalticSea Environmental Programme to a large extent reflects this philosophy. (From adomestic perspective, wastewater investments should focus on up-stream areas.)

CEE countries have committed themselves to addressing acidification, globalwarming, the depletion of the ozone layer and other regional and globalenvironmental problems in the context of the relevant conventions, protocols andother forms of international agreements. While action to meet these commitmentswill continue well beyond the horizon of the Environmental Action Programme, aspart of the EAP's policy reform and institutional and investment programs, CEEcountries may need to take selected measures which go beyond those they wouldtake as part of economic transformation.

With regard to the phaseout of Ozone Depleting Substances (ODS), they should,for example, focus on the aerosol and flexible foam sectors where ODS use can beeliminated at low cost, and prepare national recovery/reclamation/recyclingstrategies. They should review national legislation and strengthen institutional andtechnical capacity and measures in light of, for example, the Convention onBiological Diversity and the Basel Convention.

Ministerial Conference, Lu/.ern. 28th - 30th April. 1993 24

INSTITUTIONAL PREREQUISITES TO SUPPORT POLICIES AND INVESTMENTS

Experience in Western countries shows that successful environmental policyrequires the explicit commitment of the whole government, as well as thecooperation of the independent sectors, and an open approach to setting prioritiesand making choices. The enthusiasm and expertise of non-governmentalorganizations should be mobilized to contribute to the successful implementation ofenvironmental programs, particularly through close monitoring of theirimplementation.

The greatest contribution to improved environmental management is likely tocome from strengthening local and regional institutions within countries - inparticular, improving their capacity for identifying priorities, developing policy,ensuring environmental compliance, and also for operating financial systems.National environmental authorities should place more emphasis on policycoordination and create task-oriented teams to work on priority issues. Substantialsavings are possible by making environmental decisions at the level of river basinsor air sheds, but this requires institutions that integrate the different local andsectoral interests.

Studies for project preparation and industrial reviews need to be re-thought. Theymust focus on those areas where scarce investment resources can provide thegreatest benefits rather than offering pre-packaged recommendations based onconventional Western technologies. In particular, far more effort should go intoproject identification, rather than project preparation. Substantial local participationis essential both to formulate advice that can be implemented and to improve localcapacity to achieve better environmental performance from existing facilities. Thesechanges in approach will require much more careful attention to the terms ofreference for studies to ensure that the resulting proposals meet clear objectives andaddress the financial and institutional constraints.

IMPLEMENTATION

The Action Programme establishes a partnership between Eastern and Westerncountries. While the responsibility for projects, policies and institutionalimprovements lies with CEE countries, Western governments and internationalinstitutions would provide technical assistance to support the policy and institutionalreforms, and contribute toward the implementation of priority projects. The variouspartners must re-examine their policies and programs in light of the ActionProgramme. Governments -- not just environment ministries - should activelysupport this process. Inter-ministerial task forces may be useful instruments for thispurpose.

One of the principal challenges in implementing the EAP is to find the best ways tochannel financial resources to, and to implement the smaller-scale activities that canbe carried ogt in the short term, and to identify viable larger projects. There arethree elements to this approach.

1. A process for identifying priority actions which links the threats from theexposure of populations or ecosystems to pollutants with alternative mitigationstrategies and their costs. National environmental action programs will need toidentify the problems, their impacts, and alternative strategies leading to policy,

Ministerial Conference, Lu/.ern. 28th - 30th April, 1993 25

institutional and expenditure actions at specific locations where there is a clear casefor urgent environmental expenditures. The necessary calculations and analysesare not easy, and there are generally no simple relationships between sources ofenvironmental pollution and environmental damage. However, in deciding onparticular environmental actions, implicit assumptions are made in any case.

2. Mechanisms to ensure that actions requiring modest expenditures which canbring substantial environmental improvements are speedily identified andimplemented. Some CEE countries have already launched programs of rapidenvironmental reviews, or audits, in different sectors. Such reviews are essentialsteps to develop recommendations for low cost environmental improvements. Thesmall expenditures could be financed through national and/or local pollutionabatement funds. External agencies could contribute to such a fund which wouldgenerally make financing available in the form of loans at normal real rates ofinterest. In addition, grants could be made available separately where "win-win"investments are not sufficient to remedy the most urgent environmental problems.Again/some countries are already pursuing these ideas in practice.

3. A framework for financing larger investments (typically through loans) whichgives particular emphasis to "win-win" opportunities but which can be combined withpublic funding to meet high priority environmental goals that cannot be justified oneconomic grounds alone. Larger investments of course require the full application ofthe project-based approach with feasibility studies and other preparatoryexpenditures. However, good feasibility studies should address alternativestrategies and the phasing of investments.

Project Preparation Framework. Discussions have been initiated to reinforce

the partnership under the Action Programme through a "Project Preparation

Framework." This would provide the necessary initial funding to help identify high

priority environmental investments in accordance with the Action Programme and to

advance such proposals rapidly to the stage where they can be financed either by

CEE countries themselves, or through bilateral or multilateral channels. In this

framework, a Project Preparation Committee would be established, as well as

national and local preparation bodies for the preparation and implementation of

projects, where appropriate.

Ministerial Conference, Luzern. 28th - 30th April, 1993 26

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Ministerial Conference, Luzem, 28th - 30th April, 1993 27

PART II

Conference

Proceedings

AgendaQueuing of the Conference public sessionPresentation of the Results of the Prenaratorv Process

1.

2.

3.3.1.

3.2.

3.3

4.

ChairStatements

Report

Adoption of the Agenda

Chair

Federal Councillor Ruth DREI FUSS. Switzerland- Federal Councillor Ruth DREI FUSS- Minister Frantisek BENDA, Czech RepublikWilhelm SCHMID for the Group of Experts

closed session

Federal Councillor RulJi DREIFUSS

Environmental Action Programme for Central and Kastern EuPOlM?Itiodiversitv Conservation

ChairKeynote SpeakerMain Speakers

closed session

Minister Klaus TOEPFER, GermanyMinister Janos GYURKO. Hungary- Wilfried THALWITZ. Vice-Presidenl, World Bank- Catherine LALUMIERE, Sccr.gcn.. Counc.of Eur.

Evolving Environmental Programme for EuropeThe StiUV, of the Environment Renort fur EurüDt closed sessionEnvironmental Information

ChairKeynote SpeakerPresentation

Minister Andres TARAND, EstoniaCommissioner Joannis PALEOKRASSAS, EC Com.EC Commission

Innovative Instruments of Environmental Policv closed session

ChairKeynote SpeakerMain Speaker

Minister Victor DANILOV-DANILUAN. Russian F.Minister Svend AUKEN, DenmarkPierre V1NDE, Deputy Seer. Gen., OECD

Moniturintf- Compliance. Enforcement in Env. Policv closed session

ChairKeynote SpeakerMain Speakers

Ministerial Declaration

Chair

Conclusion of the Conference

ChairStatements

Press Conference

ChairParticipants

Minister Hans ALDERS, The NetherlandsThe Rt Hon. Michael HOWARD, United Kingdom- Administrator Carol BROWNER, USA- Gerald HINTEREGGER, Exec. Seer., UN/ECE

closed session

Federal Councillor Ruth DREIFUSS

public session

Federal Councillor Ruth DREIFUSS- Vice-Minister Branimir NATOV, Bulgaria- Federal Councillor Ruth DREIFUSS

Federal Councillor Ruth DREIFUSSSession chairpersons; keynote and main speakers,ministers, heads of delegations of internationalinstitutions and international informal sector delegations.


Opening SessionOpening Address

by


Switzerland

(Translation from French original)

We are living through a historic period of far-reaching changes in Europe. All such changesare caused by vital necessities. Today, protection of the environment and of its biologicalresources is a question of survival. It is capable of stimulating the creative forces required tobuild the emerging Europe and the new balance of power in the world. This is to be based nolonger on force but on convergence of interest and joint projects aimed at harmony with ourenvironment and with nature.

In the wake of the great travails of the first half of this century, far-seeing men and womenlaid the foundations of a process aimed at bringing peace and prosperity to Europe. The HagueManifesto in 1948, the creation of the Council of Europe in 1949, followed in 1952 by theEuropean Coal and Steel Community which gave birth to the European Economic Community- these were the first moves in the great cooperative effort undertaken in the second half of ourcentury to put an end to the military catastrophes which had repeatedly torn Europe apart overa period of nearly a hundred years. In a Europe paralysed by decades of hate andconfrontation, Robert Schuman, one of the great pioneers of the new Europe, declared in1950: "Europe will not be created all at once nor as one complete building; it will come aboutthrough a series of concrete steps, establishing first of all as a firm fact the principle ofsolidarity".

It is in this spirit that we must now make this ministerial conference into a concrete step inthe direction of European cooperation, to apply to our continent as a whole the principleswhich we all adopted at the United Nations Conference on Environment and Developmentnearly a year ago in Rio de Janeiro.

The recent wave of liberalisation and démocratisation in the countries of central and easternEurope provides us with the opportunity to extend our joint effort to the whole of ourcontinent in a spirit of solidarity and complementarity. We are all only too well aware thatthese countries are confronted with particularly difficult economic and ecological situations -but the countries of western Europe also bear a large share of the responsibility for the harmdone to the environment, and their economies too are faced with difficulties of a far-reachingnature.

All of us must now work together with a view to future prosperity, harmony, peace, socialsolidarity and ecological responsibility.

The environment is one of the cornerstones of our new Europe. Since the United NationsConference on Environment and Development, it has become clear to us all that sustainableeconomic development cannot even be imagined without the strictest possible protection of theenvironment and its biological diversity. Environmental objectives must be integrated intopolicies in all branches of government; they comprise an indispensable condition for the

Ministerial Conference, Lu/,ern. 28th - 30th April, 1993 29

expansion of human experience and wellbeing into new fields. Clear decisions and practicalapplication of environmental policies are now expected from us. An environment which isbadly treated - taken together with wide disparities between the living conditions in thedifferent regions of our continent - are factors of economic and political déstabilisation whichcould well compromise the success of our undertaking.

For this reason I am particularly happy to note that not only are ministers of theenvironment present here today, but also that we have been joined by many of our colleaguesresponsible for financial and economic affairs. This bears witness to the importance which theyattach to environment policies for economic development and political stability throughoutEurope.

It goes without saying that the new Europe should not bend to its own affairs without duereference to the urgent problems of great importance with which other regions of the world areconfronted. But only a Europe which is more at one with itself, which is stronger and moreharmonious, will be able to increase its cooperation with the developing world.

We cannot afford to ignore the enormous amount of ground which has to be made up bythe economies of central and eastern European countries nor the major ecological risks whichthreaten health and even life itself in many places there. But this situation should in no caseopen the door to a state of economic dependence. We are in favour of total convergence of theinterests and policies of all our countries with a view to creating a coherent and harmoniousEuropean continent. It is our intention to build together the Europe of tomorrow and to findjoint solutions to our manufacturing and agricultural production problems, to the managementof our waters and of our natural resources, both renewable and non-renewable, to the problemof wastes, to the protection of our soils and our air, to the conservation and restoration of thediversified inter-relationships of nature, to problems of research, training and education - all ofwhich are of such vital importance for the proper functioning of our democratic institutions.

This impressive list of problems shows very clearly indeed that the cooperative spirit whichis developing between us must certainly not. stop at the provision of financial and technical aid.This is only the beginning of our cooperation - the start of a new era of creative activity -whose development far into the future is impossible to predict today. We must work out eachstep separately, first in our minds and then by bringing it to practical fruition.

The glimmers of hope which we see through the clouds today would not be as bright as theyare without the work of the pioneers and the bridge-builders who have emerged since thebeginning of the liberalisation process in the countries of central and eastern Europe and whowere amongst the organisers of the first environmental conference held in June 1991 at DobrisCastle, near Prague. 1 am particularly pleased to welcome among us today Minister JosefVavrousek, who took the initiative for that memorable conference and is now present as therepresentative of a non-governmental organisation.

The ministerial conference at Dobris ended by giving a clear mandate to our governments toset on foot a concrete action programme to resolve the most urgent ecological problems ofcentral and eastern Europe. The medium-term aim was to undertake a stock-taking process ofthe state of the environment, and a long-term aim was to prepare the basis of a comprehensiveenvironmental programme for the whole of the European continent.

It is with great satisfaction that I am able to state that this mandate has been fulfilled andeven exceeded. We now possess not only a catalogue of projects couched in terms which arecomprehensible to all but also a genuine strategy - which comprises a framework for our futureaction in favour of the European environment. We also have an intermediate report on the

Ministerial Conference. Lu/ern, 2Xth - 30th April. 1993 30

state of the environment and a set of practical proposals for strengthening cooperation in thesense of working out joint environmental policies.

The work of preparing this conference has facilitated the development of a synergy effectamongst the governments of the fifty participating countries, within the whole region coveredby the United Nations Economic Commission for Europe, and amongst the internationalfinancial organisations and institutions which have decided to pool their services for the sake of"Environment for Europe". The presence amongst us of the representatives of non-governmental organisations and of the various economic branches concerned by thisconference, as well as bodies devoted to the protection of nature and of the environment andscientific agencies, provides ample evidence of the wide public interest engendered by ourwork. It also demonstrates yet again the excellent spirit of cooperation and cohesion which Lsso important in this historic period which our continent is traversing. By taking urgent supportmeasures and creating the appropriate administrative framework, it is our duty to promote andencourage this dialogue between all the sectors which represent the diverse interests of thepopulations of our countries and the institutions of our states.

I cannot conclude this introductory message without mentioning - with infinite sadness - thefact that this European unity which we see at this conference is indelibly stained by the dreadfulanachronism of the bloodshed which is taking place at this very moment amongst ourEuropean brothers and sisters in several parts of former Yugoslavia. It is my deepest wish thatthe dynamism of our work here will finally succeed in channelling the energies of all peoplesaway from war and towards the infinitely more rewarding work of building peace andprosperity.

I am sure that each one of us will do his best, and her best, to ensure that the discussions ofthe next few days are spirited, lively, constructive and open-minded, and above all that theyshould be motivated by a desire to act with maximum effectiveness for the benefit of all thepeoples of Europe - so that we will be able to leave to future generations a continent which isgood to live in.

Ministerial Conference. Luzern. 2Xth - 30th April. 1993 31

Opening SessionStatement

by

Minister Frantisek BENDA

Czech Republic

It is a great honor for me to speek to you at the opening of the second conference"Environment for Europe". About two years ago it was the Czech and Slovak Republic thattook the initiative and organized the first ministerial conference. You will all agree when I saythat this first "Environment for Europe" conference was a very important and also uniqueevent. Unique because it was the first time that environment ministers of all, western, centraland eastern Europe, and representatives of numerous multilateral organizations all mettogether.

I would like to stress however today that the Dobris conference, named after the castle were ittook place, was not meant to be a unique event in the sense of one and only occasion, incontrary, a clear intention of the organizers of the Dobris conference was to initiate a processof East and West working together for a better environment in Europe and of sharingresponsibility for addressing global environmental problems, we see ourselves confronted withtoday.

That is why 1 am so glad to be here in Luzern and to stand next to you, Mrs Dreifuss,Councillor of the Swiss Federation, and host of this conference, so that I can in a way ofspecking pass on the torch and at the same time express my gratitude to you for having takenthe initiative to organize this conference, thus insuring the continuation of the process thatstarted in Dobris.

During this it might be interesting to tell you that during the preparatory process of thisconference, which started immediately after the Dobris Conference, at first one spoke of thepost Dobris Conference, later to become almost unnotealy the Luzern Conference. To me thisindicates that the two conferences cannot be seen as separate events but as being both part of aprocess that we will not hold in Luzern either.

Before we start our work here today, it might be wise for just a moment to stand still at ourfirst "Environment for Europe" conference to reflect on the context in which it took place andto ask ourselves the question 'what has happened and what has changed over the last twoyears.1

At the time of the Dobris conference, Central and Eastern European countries were onlyrecently liberated from the totalitarian regime that had lasted for more than forty years. Wefound ourselves confronted with immense environmental problems. Problems that were largelydue to a complete lack of care for the environment by the totalitarian regime system. Beingconfronted with this immense problems there existed a great deal of enthusiasm to addressthem and to rapidly improve the quality of our environment. In fact, during the last three yearslarge efforts both on a national and international level have been undertaken in this respect.National environmental policy programmes, legislation, international assistance, regionalprojects like the black triangle, etc.


When we look at the context of todays conference there are two observations I feel myselfobliged to make. The first is that although many efforts have been undertaken with importantresults, the environmental problems are still immense. As an example I may remind you of thesituation in my country during the month of February this year, when smog concentrationsbecame so high that emergency mesures had to be taken such as the closing down of schoolsand even the evacuation of people. The second observation I would like to make is thefollowing: The Central and Eastern European countries are all in the middle of the process oftransforming their economies to market oriented economies. This process has already andcertainly will bring many benefits to the environment. But the process of transforming oureconomies also carries a risk, a risk of the attention being too much focussed on economicfigures and of the environment slipping away from the list of priorities. Bearing theseobservations in mind you will understand me why I am so glad that we all have been given theopportunity to convene here today to discuss for the coming three days the strategies that haveto be followed and the actions that have to be undertaken. A number of excellent documentshave been prepared that will be presented at this conference. I would now just like to mentionthe Environmental Action Program for Central and Eastern Europe. It provides a mostvaluable basis for our national environmental policies and for international activities,cooperation and assistance.

I do not intend to speek much longer. There lies a lot of work ahead of us wich we had betterget started with. May I once again thank our hosts for having organized the conference and forreceiving us today. I wish to all of us a very fruitful and inspiring conference. Thank you.

Ministerial Coherence, Lu/cm. 2Xth - 30th April, 1993 33

Opening Session

PRESENTATION OF THE RESULTS OF THEPREPARATORY PROCESS

by

Wilhelm SCHMID

Chairman of the Group of Experts

INTRODUCTION

1. The preparations for the Luzern Ministerial Conference "Environment for Europe" beganat the intergovernmental expert level eighteen months ago. A year later, we began to feel thatour work was sufficiently advanced for the date of the Conference to be set.

2. Two pre-conditions had to be met before setting the date:

(a) The main actors involved in environmental cooperation in Europe had to be engaged inpreparing the Conference - governments (environment ministries, but also ministries of finance,economy, planning), international organisations and financial institutions, conventionsecretariats, informal sectors.

(b) We had to be able to put before our ministers proposals for significant concrete action,thus preparing the ground for a conference which would make a difference, a conferencestating at its conclusion clearly what must and can be done now, and indicating what must andcan be pursued further.

3. I believe that three achievements may already now allow us to claim for this Conference adifferent character:

(a) The preparatory process has helped to pull together the many cooperative efforts in thefield of the environment in Europe and to create a stronger coordination framework; theEnvironmental Action Programme for Central and Eastern Europe has been especiallyimportant in this regards.

(b) The Luzern Conference is not a one-off event, but is set firmly in a on-going process andbuilds on the Bergen, Dublin and Dobris Castle Conferences.

(c) Luzern has itself helped to concentrate European environmental cooperation by mergingtwo ministerial conferences: the follow-up to the Dobris Castle Conference and what wouldhave been the seventh European Ministerial Conference of the Council of Europe.

Ministerial Conference. Luzern, 28th - 30th April. 1993 34

MANDATE

On the basis of the Dobris Castle conclusions, the Group of Experts which oversaw thepreparations for the Luzern Conference established three objectives:

(a) to elaborate proposals for urgent actions to assist in repairing the worst environmentaldamage in Central and Eastern Europe;

(b) to propose immediate measures to preserve the impressive natural heritage still existingin Central and Eastern Europe and assure its sustainable use;

(c) to propose concrete measures to strengthen European convergence in environmentalpolicies and protection levels. This involves, as a first step, reinforcing a number of tools andmechanisms of environmental policy and creating a harmonized data base for the whole ofEurope.

EXPERIENCES

1. The pictures shown, both good as well as bad, could have been taken in almost anyregion in Europe. As it happens, the bad ones come from the Western part of Europe, and thegood ones from the Central and Eastern parts. The message which these images convey hasbeen borne out by the extensive analytical work undertaken in support of the EnvironmentalAction Programme: There are devasted areas in Central and Eastern Europe, as there were inthe Western part of Europe some decades ago. Biological and landscape diversity has remainedfar richer in the Central and Eastern European parts, while many of the environmentalproblems - those associated with energy use, traffic, waste management, human settlementsand intensive agriculture come to mind - are far from being resolved in the Western part ofEurope.

2. These observations lead to the affirmation that, as we are beginning to experienceEurope again as a cultural and economic whole, Europe certainly represents one ecologicalarea where the old East-West division is not relevant in the least. Indeed, our cooperation torestore the European environment and to preserve it as our common heritage and our effortstowards convergence within that area promote stability and provide one of the pillars of theemerging new Europe.

RESULTS

It is within this new European framework that the results of the preparatory work must beplaced, as elements of an evolving Environmental Programme for Europe:

1. Environmental Action Programme for Central and Eastern Europe

One of the major elements in this European programme is the Environmental ActionProgramme for Central and Eastern Europe (EAP). It was prepared by an intergovernmentalTask Force chaired by the EC Commission, with important contributions from the OECD andabove all the World Bank. The EAP is a major item on the conference agenda. I should like,therefore, to limit myself here to stressing (a) its European character and (b) the need tomonitor its implementation:


(a) The EAP offers a framework for setting national environmental priorities in thecountries of Central and Eastern Europe. With these priorities as starting point, it also providesa masterplan to help ensuring that the cooperative efforts of governments, internationalinstitutions and the private sector are efficient by being environmentally sound.

(b) 1 should like particularly to draw your attention to the implementation mechanisms forthe EAP proposed by the Group of Experts: a project preparation framework, an informalproject portfolio, strenghthening coordination of assistance to all countries in transition,streamlining information systems on resource flows and maintaining the EAP as a "living"document.

2. Protection of Biological Diversity

The contribution of the Council of Europe and the IUCN stresses three main issues:

(a) the protection of biological diversity both within and outside special protectedzones;

(b) the positive role which ecological tourism can play; and

(c) the importance of information, education and training.

The results of this part of our preparatory work, and the proposals derived from it, arepresented in a separate report submitted by the Council of Europe, as well as in the EAP. Thisis why it is being proposed to address biological diversity under the item dealing also with theEAP.

3. Tools and Mechanisms

The decision was to launch the Environmental Programme for Europe by examining waysand means to strengthen a number of crucial instruments of cooperation in the field of theenvironment. This work was carried out within the UN Economic Commission for Europe(UN/ECE) by a Task Force led by the Chairman of the Senior Advisors to ECE Governmentson Environmental and Water Problems (SAEWP). The instruments that were examined weretechnology cooperation, integrated pollution prevention and control, economic instruments,especially concerning the environmental effects of energy use and air pollution, environmentalperformance reviews, environmental information, public participation, and international legalinstruments.

The results of that work are contained in a document adopted by the SAEWP and in anadditional document on legal instruments prepared by legal experts. As for the latter subject, aquestionnaire regarding seven conventions of particular importance to the UN/ECE region wasdrawn up with the help of the respective secretariats. The responses from governments to thequestionnaire provided the basis for concrete proposals on how to improve the implementationof existing environmental conventions, resources permitting. A complementary study of two ofthese conventions led to conclusions on how to strengthen monitoring and enforcement.


4. European State of the Environment Report

Work on the first European State of the Environment Report is being led by the Task Forcefor the European Environment Agency within the EC Commission, with the help of anintergovernmental group which includes the Council of Europe, the OECD, the UN/ECE,IUCN, WHO and UNEP. The Report is expected to be ready before the end of 1993. It willprovide an indispensable data base for the further development of the EnvironmentalProgramme for Europe.

5. Draft Ministerial Declaration

The Group of Experts hope that the draft of the Ministerial Declaration that they submit toyou corresponds, both in its overall scope and vision, as well as its detail and selectivity, to thespecial character of this conference, and will provide a helpful basis for reaching agreement onthe policy conclusions and recommendations of the Conference.

PROCESS

1. The process "Environment for Europe" and the Luzern Conference have many roots anddraw strength from sources too numerous to list. There can be no doubt, however, that theprocess and conference are firmly in the spirit of the CSCE, and that Luzern should also beseen as a concrete expression on the European regional level of the philosophy embraced by allour governments at the UNCED in Rio de Janeiro.

2. The draft Declaration contains proposals on how to continue the process "Environmentfor Europe". These aim to make the best possible use of existing institutions and profit fromthe impetus generated by an ad hoc mobilisation of forces. The Dobris Castle Conferencestarted the process "Environment for Europe", Luzern is the next stage, other stages must andwill follow.

Ministerial Conference. Lu/.ern, 28th - 30th April. 1993 37

Item 2: Environmental Action Programme for Central and Eastern Europe.Biodiversity Conservation

Keynote Speech

by

Minister Jânos GYURKÖ

Hungary

It is a great honour and, at the same time, a great responsibility that, from among thecountries of Central and Eastern Europe, Hungary has been invited to deliver the keynotespeech for this session dealing with the Environmental Action Programme for Central andEastern Europe.

It is well known that the world economy is undergoing a severe recession. An even moreserious economic decline is happening in the countries of Central and Eastern Europe, andenvironmental policy-makers must take this into consideration.

Public opinion polls indicate that the importance of environmental issues is decliningthroughout Europe. This is especially true in the countries of Central and Eastern Europecommonly characterized by having declared a transition to market economies in a period ofpolitical transformation. The "countries in transition" show considerable differentation in theireconomic development and in their pace towards market economy. In an historicallyunprecedented process of structural change, however, each country is facing similar problems,which affects at the same time the successful implementation of any environmental actionprogramme. These common problems are:

• a general lack of capital;

• the ownership problems inherent to the transition;

• privatization of state enterprises and environmental liabilities;

• high internal and external debt;

• growing unemployment; and

• high inflation rates.

In this forum, we should again draw Europe's attention to the fact that despite the problemsof the entire continent, and especially of the countries in transition, the importance ofprotecting the environment and natural resources, preserving human health and concern for thequality of life of future generations cannot be diminished.

In this context it is timely to have in front of us this impressive Environmental ActionProgramme for Central and Eastern Europe. It is the result of many meetings of expertsorganized by the joint efforts of the World Bank, the European Communities and theOrganization of Economic Cooperation and Development. To them, we express our gratitude.

Ministerial Conference, Lu/.crn. 28th - 30th April, 1993 3H

I consider this document a comprehensive environmental strategy for the countries of theregion. It gives an in-depth analysis of the most serious environmental problems and, at thesame time, offers several methods for their solution. It must be stressed that the EnvironmentalAction Programme envisages an East-West partnership and reflects a certain pan-Europeansolidarity. The strategy rests on three pillars and assumes that the countries of Central andEastern Europe will undertake; one, comprehensive environmental policy reforms, two,institutional reforms and three, certain investments as well. The developed countries will, inturn, provide support for these reforms and help solve the most urgent environmental problemsin high priority areas or "hot spots".

There is a realistic chance to integrate environmental considerations into the process ofeconomic restructuring of the Central and Eastern European countries. There are considerablereserves in increased energy efficiency and better resource management. This way, oftenwithout overly large financial investments, economic competitiveness is increased facilitatingthe creation of conditions for an improved environment. This "win-win" principle could be oneof the keys for both the economy and environment of the region.

The Environmental Action Programme offers a wide variety of means and mechanisms,which are based on the experiencies of industrialized countries, and various internationaldevelopment and financial institutions. With appropriate modifications, they can be utilized inthe countries of Central and Eastern Europe.

Obviously, the implementation of the Environmental Action Programme is the most criticaland important issue to be discussed here. We must therefore develop an effective financial andmanagement mechanism for executing the related projects.

Our almost four years of experience in cooperating with the G24 countries demonstratesthat the region's governments must rely principally on their own resources in solvingenvironmental problems. The G24 countries have provided effective assistance to this goal andit is hoped that in future they will continue to do so, primarily in financial and technicalassistance in the preparation of environmental projects.

Considering the economic challenges within the region it is particularly important to supportthe initiatives being taken by the World Bank, the European Bank for Reconstruction andDevelopment (EBRD) and other financial institutions, to develop innovative financialmechanisms that will yield the greatest possible environmental benefits at the lowest possiblecosts. In this respect, we find that "burden sharing" is an especially excellent tool to reducelocal pollution with regional and global benefits, as it has been just recently initiated by TheNetherlands.

The project portfolio for the Environmental Action Programme and in connection with theProject Preparation Facility and Fund, appropriately coordinated, could serve as a projectpipeline for donor and recipient countries. The Lucerne Conference may offer an excellentopportunity for directing bilateral and multilateral financial interests to support many of thelisted or yet unlisted projects. The regional Environmental Center for Central and EasternEurope in Hungary serves the interests of the region. Its possible participation with acoordination role in the Project Preparation Facility and monitoring of the implementation ofthe Environmental Action Programme is suggested for consideration.

Ministerial Conference. Lu/crn. 28lh - 30th April. 1993 39

Ladies and Gentlemen,

Internationa] and domestic public opinion expects us, I believe, to start immediately solvingthe most urgent problems specified in the Environmental Action Programme. This conferencewill be considered successful only if agreements on the commencement of specific projects areinitiated or concluded. To this end, let me suggest as a minimum program for each of thecountries in Central and Eastern Europe that at least one hot spot be designated forremediation.

The successful implementation of the Environmental Action Programme will be possibleonly with the cooperation of the financial and economic ministers of the governmentsconcerned. For this reason we appreciate the initiative and help of the Swiss government toinvolve from the beginning of the preparation work experts from the relevant ministries inCentral and Eastern Europe.

The Environmental Action Programme concentrates primarily on the solution of the mosturgent and pressing problems representing short- and medium-term tasks. The public, as wellas the green movements, however, are highly concerned with the longer-term goals and resultsof the Environmental Action Programme.

Some problems seen as minor today, may become more serious in the future. Valuesseemingly unimportant, may become major resources tomorrow. From this perspective in ourregion there are vast areas untouched, in their almost natural existence, due to thecharacteristic past of Central and Eastern Europe. The preservation of these areas is in theinterest of both Europe and the world. It is, therefore, important to elaborate further thechapter on biodiversity of the Environmental Action Programme and to propose specific-measures and programs to preserve these natural resources - an important heritage for ourchildren.

It is of major importance for Hungary and other countries of the region to preserve thosewetlands, forests and grasslands, a rich biodiversity, that are serving as wildlife habitats. InHungary, we are working on the elaboration of a system of "river corridors" which willeventually cover the whole Europe. Hungary has also been leading the preparation of theDanube Basin Ecological Convention thereby contributing toward regional cooperation.

In this respect, we particularly welcome the fact that the Council of Europe has prepared astrategy for the pan-European protection of biodiversity. We believe, this will greatly helprealize the objectives of the Hungarian nature conservation strategy. We also support ideasrelated to the development of environmentally friendly tourism, which can provide a goodopportunity to link nature protection with the economic development of rural areas in asustainable way.

The implementation of the Environmental Action Programme will require the formation of abroad-based platform at both national and international levels by involving the greenmovements, businesses, science, churches, trade unions and various levels of government. Amarked decentralization of responsibilities in environmental policy implementation is alsonecessary.


Mr. Chairman!

Ladies and Gentlemen!

With these ideas in mind, I would like to finish my address, hoping that the endorsement ofthe Environmental Action Programme for Central and Eastern Europe will be to thesatisfaction of both governments and international institutions and last but not least, to thepublic at large.

In any case, Ladies and Gentlemen, considering the permanent degradation of the globalenvironment I think it is not exagerated to put the famous all purpose Shakespearan question:"To be or not to be?" We are here, Ladies and Gentlemen, to give a positive answer to thisquestion by strengthening our efforts to understand and preserve the global ecosystem and toleave a world for the next generations where it is worth-while to live in.

Thank you for your attention.

Ministerial Conference, Lu/.em, 2Xth - 30th April, 1993 41


Presentation

by

Mr. Wilfried THALWITZ

Vice-President, Europe & Central Asia, The World Bank

The Road to Implementation

It is an honor for me to have an opportunity to address this ministerial meeting. I do it withthanks to the Swiss Government and Federal Councillor, Mrs. Dreifuss. We would also not behere to talk about the road to implementation without the professional work of the ExpertGroup that guided the creation of blueprints to the new approach.

It has taken me 42 years to return to this beautiful city where, with the unconcernedenthusiasm of a young man, 1 participated in a mid-winter swimming-meet in the lake. Fewpeople then worried about pollution — water or air.

However, times have changed. The fact that we're all gathered here today is testimony tothe widespread recognition of the tremendous scope of the environmental problems that mustbe addressed throughout Central and Eastern Europe, including the independent states of theformer Soviet Union. In a recent Gallup survey, 88% of people in Poland and Russia considertheir country's environment to be in a poor state; just as many are concerned specifically aboutpollution effects on their personal health.

We have seen how human health is affected especially by air pollution — such as lead fromsmelters and transport, or dust from coal burning and metallurgical plants. Also, excessivenitrates in drinking water expose many newborns to the risk of sickness — even death — from"blue baby syndrome".

The problems in Central and Eastern Europe are deep, and reflect years of waste. Thecountries have to deal with serious environmental problems at the same time as they undertaketheir enormous systemic transformation. The populations that provided the impetus for thistransformation did so with aspirations of higher living standards and overall economic growth.

What has happened so far is an economic decline of 20-50% across the region. Past savingsare locked in enterprises without clients. For this trend to be reversed, for the expectations ofresumed growth to be met, will require substantial resources — public but also private — torestructure industry, to modernize infrastructure, for retraining and for social protection,particularly for the more vulnerable segments of the populations.

Ministerial Conference. Lu/.crn. 28th - 30th April. 1993 42

The challenge for us is to find a way to get as much environmental improvement as possiblewithin these constraints. In fact, we need to find ways to achieve environmental improvementsas part of the economic and social change.

A new approach

Let me ask a provocative question: What does the Environmental Action Programme tellus that we did not already know?

The value of the Environmental Action Programme (EAP) is its focus on an importantfact of life: there is a severe scarcity of money, both in the transforming countries and in therecession-shaken countries of the West who also need to recover as a basis for a gradualincrease in their assistance capacity.

The EAP asks a new question: "What is the most serious environmental problem to beaddressed first, and how much improvement can be achieved by different means and atdifferent costs?" Because we can't do everything -- how do we make choices? We know thatit may be possible, for example, to achieve 90 percent of the desired environmentalimprovements at one half the cost of meeting the goals fully, just as the countries in the Westtightened their standards over time. Such an approach will take time, but it also took time inthe West. For example, it took 17 years to achieve a 90% reduction in lead emissions in theOECD countries.

I have heard many of you complaining that too many studies have been carried out but thatthere has been no action. Could it be that these studies didn't ask the right question — that theyproposed expensive solutions to meet the highest standards, that the money for this was notavailable, and that studies become the sand into which to bury our heads?

This is the question: how to get the maximum impact from limited resources? How toavoid the gigantic lists of large projects?

We have to move beyond the traditional project-based investment approach. We're lookingat something else, namely what some of you have been calling the "three-legged approach"which combines the power of economic and policy reform, carefully selected expenditures andserious institution building. Let me explain.

The First Leg is Policies to Stimulate Clean Growth

Here the challenge is to capture from the economic transformation process all theenvironmental benefits it can bring. This is especially true with regard to air pollution which Lsa major health threat. The current economic transformation will also lead to a massiveturnover of the asset base - away from the smoke stack industries toward industries based oncleaner technologies, and toward the service sector which will provide employment in a moreenvironmentally benign fashion. Policy reforms which remove energy subsidies and encouragereduced use of fossil fuels produce efficiency gains as well as environmental gains.

But economic transformation and market reform will not solve all environmental problems.Sound environmental policies and investments will still be needed. Environmental chargestaxes, and regulations, which are not new to the countries of Central and Eastern Europe,complement economic policies. They provide incentives for enterprises to go beyond usinginputs more efficiently, by stimulating them to also invest in cleaner technologies.

Ministerial Conference, Luzon, 28th - 30th April. 1993 43

We know that many of these economic and even environmental policies -- such as removingenergy subsidies -- may imply difficult social problems when it comes to closing uneconomicindustries, or having to pay more for energy resources. It would be a mistake to believe thatthese policies can be substituted by large investments in hardware, but it is appropriate to makesmall investments to mitigate the adverse impacts even before polluting industries arerestructured or replaced by other activities. The main efforts should focus on creating socialsafety nets, including skills development and re-training, to assist those hurt by the transition.

The Second Leg is a Fresh Look at Environmental Expenditure Priorities

The EAP emphasis here is on three things:

First, The EAP calls for a clear understanding of the problem tobe solved, before we rush into a solution. We must improve the process foridentifying priority actions. This starts from information on the exposure ofpopulations or ecosystems to pollutants which are known to cause damage andon the sources of such exposure. On the basis of this, alternative mitigationstrategies and their costs can be developed for specific locations.

Second, The EAP establishes that there are many actions requiringmodest expenditures which can bring substantial environmental improvements.These need to be identified and implemented quickly.

Let me digress just for a moment to give you one particularly impressiveexample of this. Initial results are available from 35 Polish factories which haveparticipated in a Norwegian program of know-how transfer to Central andEastern Europe. During the first year of the program, zero-cost managementimprovements and investments ranging from as little as US$8,600 to US$1.5million have reduced pollution discharges and/or waste generation by 20-98(/r.The payback period on these investments varied from 1 week to 2 years.

Third, The EAP calls for financing of well prepared largerinvestments (typically through loans) which, combined with public funding, couldbe used to meet high priority environmental investments not justifiable onfinancial grounds alone. An important point is to understand that largeinvestments can be broken down into several smaller steps; they can be phased toaccommodate financial constraints while making significant improvements inenvironmental conditions.

The Third Leg of the "three-legged approach" is Institutional Development

At least as important, successful environmental action depends on solid technical andinstitutional capacity. In most of Central and Eastern Europe, there is impressive technicalcapacity; whet needs to be developed is familiarity with decision making on difficultenvironmental problems — how to identify and implement projects, phase standards, or carryout effective enforcement and reliable monitoring. We need to find better ways - through along-term commitment and closer cooperation - to help build the necessary institutionalcapacity.

As you well know, environment cuts across many sectors and affects almost all parts of life.

If programs and projects aimed at the environment are going to be successful, they will require

the full commitment of the entire government - and the support of the people and of non-

Ministerial Conference, Luzem. 28th - 30th April. 1993 44

governmental organizations. The presence, at this Conference, of senior representatives fromfinance, planning, economy, industry, health and other ministries is an excellent beginning. Letme congratulate all of you for having achieved this remarkable collaboration.

What next?

Over the past months, you have been discussing various ways how to set up newcollaborative mechanisms to support actions under the EAP. You are debating how toestablish a project preparation framework, how to identify and develop small scale operations,and mechanisms for financing suitable projects, and how to provide overall guidance to thefollow-up to EAP. All of us are keenly aware of the need to move ahead rapidly and todemonstrate tangible improvements in a short time. Let me share with you my views on this.

First, having identified the right problem, we clearly need thecapacity — within Central and Eastern European countries and with the financiers-- to prepare these environmental projects, with the appropriate blend ofinvestment, policy and institutional development. The idea of a collaborativeproject preparation framework is a welcome one. To succeed, we need a lightprocess, which is open to all who want to participate; it should neither bemandatory nor exclusionary. It calls for strong country ownership and a simplebut effective "screening" to ensure that the overall goals and approaches areconsistent with the EAP approach, as applicable in individual countries. It thencalls for effective preparation in close association with those who mighteventually finance or co-finance it. We in the World Bank on our part are fullycommitted to put at your disposal our professional capacity for technical supportto this process, with EBRD and others.

Second, is the challenge of small and medium scale projects, whichneed to be launched on a fast track to make visible impacts as soon as possible.Some Central and Eastern European countries have already launched programsof rapid environmental audits in industry. Such audits are essential first steps todevelop recommendations for low cost environmental improvements. The smallexpenditures could then be financed for example through national pollutionabatement funds. We are already supporting the establishment of such funds in afew countries, and would welcome all donors to work collaboratively on thismechanism. The illustrative project concepts developed through the EAPprocess could easily form an excellent basis to launch this important initiativequickly, possibly working with the Project Preparation Framework.

Third, we need some kind of a political guidance mechanism to theLucerne follow up. It is encouraging that you are grappling with this, and I haveno doubt you will come up with a practical solution. We expect it and wewelcome it. I cannot make any specific proposal for this political direction (asopposed to expert input), but I can make a plea that it be as simple as possibleand above all involve both West and East. Our commitment to maintain themomentum after Lucerne is strong, and we will support it in whatever capacityyou will agree.

We are already working on a series of projects which incorporate many of the ideas I justmentioned — they promote better project identification in the future, establish mechanisms todeal with many small investments, incorporate specific large components, and intensively helpstrengthen institutional capacity and apply a judicious mix of policy and investment

Ministerial Conference. Lu/.ern. 2Xth - 30th April. 1993 45

mechanisms. Over the next five years, if our borrowers so request, I would hope that theWorld Bunk could commit over US$1 billion to this effort, assuming the countries have thecapacity to borrow.

To conclude, the resource situation in both East and West is not the most favorable at thistime but, given a rigorous approach to priority setting, building institutions and getting thepolicy framework right, I am confident that Central and Eastern European countries from theoutset will be able to use their own resources and those from the West to much better effect.This would also create the basis for significantly increased flows of resources when theconditions in both East and West improve.



Presentation

by

Mrs. Catherine LALUMIÈRESecretary General of the Council of Europe

It is a great honour for me, and at the same time a great pleasure, to be here in the heart ofcentral Switzerland where democracy was born more than 700 years ago. But this Conferenceis not only important because, for the whole of the European continent and beyond, it bearsfresh witness to democracy, human rights and the quality of life in general - values which lie atthe root of all the Council of Europe's activities. It is also of quite special importance becauseit brings together not just the whole family of European States, but those internationalorganisations which have made their own effective contributions to preparing this event, withintheir sphere of competence and expertise, as well as major financial organisations and non-governmental organisations.

1 should also like, Madam President, to express my thanks to your predecessor, FederalCouncillor Flavio Cotti, through whose efforts the Ministerial Conference planned by theCouncil of Europe and this Conference today were merged. As a result, dispersal of effort hasbeen avoided. All of us are aware of the rising tide of demands of every kind, bringing withthem the risks of duplication and overlapping. Greater Europe needs to protect and defend itsenvironment, but it also needs to concentrate its endeavours.

That being sad, the protection of the environment raises two series of problems: on the onehand, the control of pollution, which is all the more harmful as it even affects human health;and on the other hand the preservation of the natural environment, with its flora, fauna andlandscapes. Of course the two approaches are closely linked. However, when we deal withpollution - which is generally of industrial origin - we are thinking mainly in terms of itsconsequences for human health. By contrast, when we seek to preserve the natural world, westart out from the principle that all species and natural landscapes are inherently worthpreserving in themselves, even if human health does not seem to be directly or immediatelyaffected.

Previous speakers have emphasised the problems of pollution. Certainly, because they posea direct threat to human health, these phenomena are extremely serious. Notable examplescome to mind in Central and Eastern Europe, even though Chernobyl should not make usforget, Seveso, Basel or Hoechst.

Unfortunately, although we have been talking for many years about the dangers caused bypollution of the air, water and soil in Central and Eastern Europe, no large-scale action seemsto have been launched in an effort to control it.

Ministerial Conference. Lu/.crn. 28th - 30th April. 1993 47

I venture tu hope that this Conference will enable a decisive step forward to be taken,particularly in terms of the investment needed to combat pollution. If the West proves unableto assist our eastern neighbours effectively, then the structures that have been set up to datewill doubtless have to be re-examined.

So priority must go to fighting pollution, improving the quality of air and drinking water,solving the problem of waste, and ensuring better safety in industrial plants, expecially nuclearplants. The health of human beings is at stake.

However, besides the control of pollution, 1 should like to put the emphasis here on thatother aspect of environmental protection, namely the conservation of nature in all its richnessand diversity. This is more particularly the Council of Europe's sphere of action.

I can quite well understand that, the situation in Central and Eastern Europe being what itis, these problems are regarded as less important. I also realise that it may appear improper totalk of nature conservation at a time when mankind is afflicted by such scourges as war,famine, drugs and unemployment, in Europe and elsewhere.

I am, however, convinced that peace among nations, and individual aspirations to a decentquality of life and standard of living, are in themselves largely dependent on the relationshipbetween mankind and nature which we are able to create. It is that relationship, between manand nature, which will also, in the long term, condition economic progress.

That is the reason why the Council of Europe has focused its own contribution on natureconservation, highlighting three quite specific aspects: conservation of wildlife; tourism and theenvironment; and environmental information, education and training.

1. Our experts have seen fit to give priority to investigating the protection and managementof our living natural heritage, sometimes called "wildlife", on a pan-European scale. In thiscontext, the first step is to draw up an inventory of the protected areas that exist on ourcontinent, and to compare the effectiveness of the various approaches employed, because -strange as it may appear - such information as we have on this subject is only partial, piecemealand incomplete. At the same time an equally methodical study must be undertaken on thenatural sites which deserve protection by reason of their biological value, that is to say, amongother things, the biological diversity which they contain.

But the very best networks of protected areas cannot guarantee that our natural assets willbe safeguarded in the long term. The pressure of development and the striving for productivityare leading to a growing fragmentation of the landscape and the deterioration in the quality ofour natural habitats. Consequently, all intervention outside urban areas must be fitted into anoverall policy which enables sustainable development and the preservation of the naturalpotential to be reconciled. It is true that the results of some large-scale, interesting studies andother research are available, not forgetting the world conservation strategy of the IUCN, theEEC/UN regional strategy for protection of the environment and the rational use of naturalresources, and the Council of Europe's European conservation strategy adopted three yearsago. But it is important to go further and to develop the various means by which, for example,damaged habitats can be preserved or restored. The various mechanisms include regulations,contracts, incentives and so on. Drawing up a kind of model law, offering suggestions tocountries wishing to amend or adapt their environmental legislation, should also prove veryuseful.

Ministerial Conference, Luzcm. 28th - 30th April, 1993 48

2. Tourism is undoubtedly one of the sectors of activity likely to see a substantialdevelopment in Central and Eastern Europe. If it is well planned, tourism can be a source ofuseful, indeed substantial, income to local populations, while preserving the beauty oflandscapes and biological diversity. Too often, alas, grandiose schemes irretrievably spoilplaces destined for tourist development, and so damage them for the future, both economicallyand ecologically.

Experiences of this kind must teach us lessons. In many cases the best way to enhance theeconomic value of a region is "soft" tourism which respects both natural and manmade sites,together with extensive agriculture and possibly certain forms of light industry. We proposethat the many observations that have been carried out in this area should be brought together,and the conclusions already formulated at countless colloquies should be looked at in greaterdetail. Above all, we propose a number of pilot projects.

But none of these goals can be achieved unless the people concerned are actively involved.

3. The Council of Europe is convinced of the crucial part which public opinion plays in theapplication of political measures and regulations. It was the Council that declared 1970"European Nature Year", which contributed largely to raising consciousness not only in themedia, but also among politicians and social and economic circles, of the importance of theseproblems now confronting the whole of Greater Europe. Our Committee of Ministers is awareof the need to continue motivating people in this way, and has just declared 1995 "EuropeanNature Conservation Year", that is to say, 25 years after the previous initiative of this kind.This time, however, we shall urge that emphasis be placed on the protection and managementof natural environments and other landscapes outside protected areas.

Developing and shaping public opinion in such a way that it not only demands anti-pollutionmeasures, or occasionally the protection of this or that species, but is prepared to finance themon a sustainable basis, is a task which must not be shirked. The non-governmentalorganisations play a crucial role in this field. We must welcome their commitment to the causeand recognise the immense amount of work accomplished, most of it unpaid and often carriedout in difficult conditions. Within the Council of Europe, it is the "Naturopa" Centre which hasbeen pursuing this task for the last 25 years.

Educating decision-makers and those responsible for spatial planning, or drafting legislationand implementing rules, is a related concern in which we have acquired a certain degree ofexperience, notably in the legal field. We are therefore happy to have succeeded in developinga major co-operation programme with several countries in eastern Europe, either in universitycircles or, for example, with government departments or resource managers. Anotherimportant activity, based on the Demosthenes Programme, is the establishment of thenecessary legislation to protect the environment. I believe that these programmes are sure todevelop over the years ahead.

Those are the areas of action in which the work of the Council of Europe may be useful. Iam sure that the Parliamentary Assembly and the Standing Conference of Local and RegionalAuthorities will make their full contribution to achieving the objecties we have set ourselves.

Apart from the three directions I have just referred to, and which provide the structure forthe Council of Europe's nature protection activities, I should like to draw attention to anothersector in which the work of our Organisation could be useful, namely the legal aspects ofenvironment protection.

Minislciiid Conference. Lu/ern. 2Xth - 30lh April. 1993 49

Among the problems which the protection of the environmnet appears to raise increasinglyis the proliferation of rules, both at the international and at the domestic level. At the sametime, there are certain particularly sensitive areas which do not have the benefit of binding legalrules (draft conventions at international level, legislation at the domestic level).

Since 1972, some 300 multilateral agreements and 900 bilateral agreements have beenconcluded at world level, not counting other texts which do not have binding force(recommendations, resolutions etc). Many of those texts apply either exclusively, or in aprimary or subsidiary manner, to Europe.

In these circumstances it is very difficult to say clearly what international obligationsEuropean States have for the protection of their environment, as some States have ratified onlysome of the conventions.

The Parliamentary Assembly has criticised this state of affairs on several occasions. It mightbe helpful to list all the legal instruments which bind the member States of the Council ofEurope, in order to monitor their application from an overall standpoint on the basis of an adhoc mechanism or a systematic exchange of views.

Such an inventory might also show that some subjects, for example protection of soils,protection of the coastline, conservation and restoration of landscapes, are not yet covered byinternational conventions, and the desirability of filling the gaps could perhaps be examined.

Another important issue is the recognition of individual rights in the environmental sphere(the right to information, the right of participation, the right to a healthy and ecologicallybalanced environment) - rights which would afford a more effective guarantee ofenvironmental protection. The expediency of drafting a convention could be looked into. Inparticular, would it be possible to link such rights to the Council of Europe's most prestigiousconvention, the European Convention on Human Rights?

On the domestic level, thought should be given to the most appropriate means of ensuringthe efficiency of environmental law, because legal certainty in this sector form part of thedefinition of the rule of law which characterises our member States. If appropriate, the draftingof a model text to simplify the rules could be envisaged.

All these questions present an interdisciplinary character, so that the Council of Europe'sexperience in the legal and environmental field could prove valuable.

In this connection, I am pleased to be able to inform you that the Convention on CivilLiability for Damage resulting from Activities Dangerous to the Environment will shortly beopened to the member States for signature. This will take place here in Switzerland, at Luganoon 21 June this year, on the occasion of the Conference of European Ministers of Justice. Ishould be happy if you, as environment ministers, could help to ensure that many of yourcountries become signatories. Similarly, we are currently drawing up a Convention on theProtection of the Environment through Penal Law.

In conclusion, Madam President, Ministers, Ladies and Gentlemen, I should like to leaveyou with a simple message: while concerning ourselves with human health and well-being, letus not neglect nature conservation; the one cannot exist without the other.


Let us look in this connection at the conclusions of the World Conference on Environmentand Development held in Rio last June. While economic development was the concern of thevast majority of delegations, it is interesting to note the important place accorded to wildlife,whether in the Convention on Biological Diversity, Agenda 21 or the Rio Declaration.

1 offer this message, not out of romantic nostalgia for the past, in the spirit of aRousseauesque "return to nature": on the contrary, 1 look realistically towards the future. Letus live in the present, let us make the best use of scientific advances, let us stimulatedevelopment and welcome progress, provided that:

it contributes to real human fulfilment - even if we no longer dare speakof happiness;it does not eat into nature's capital reserves and thus jeopardise thesituation for future generations.

I can assure you that the Council of Europe is ready to shoulder all its responsibilities fully,and that it will do so in the spirit it has always shown, that is to say a spirit of full and frank co-operation with all those organisations and people of goodwill who are concerned and arewilling to work together.

Ministerial Conference. Lu/em, 28th - 3()lh April, 1993 51

Item 3.1.: The State of the Environment Report for EuropeEnvironmental Information

Keynote Speech

by

Mr. Yannis PALEOKRASSAS

Commissioner, Commission of the European Communities

Let me first, on behalf of the Commission of the European Communities, express my thanksto the Swiss Government for hosting this important Conference. I should like to congratulateall those involved in the preparatory process for this conference which has been a successfulexample of multilateral cooperation among governments, international institutions and theCommission of the European Communities.

We have all come to a turning point in our thinking about environmental policies. Lastyear's UNCED Conference set the world on a road towards sustainable development.

Within the European Community we have agreed in our Fifth Action Programme to movedown the same road "Towards Sustainability". As the new Commissioner responsible for theenvironment, I regard my primary task to work to bring this about.

The key element in the approach I am following and which the 5th Action Programmeadvocates is the integration of the environmental dimension into other policy sectors and inparticular into overall economic policy. The ratification of the Maastricht Treaty will underpinthis approach.

To date, the approach to cooperation between European countries in the field of theenvironment has not taken this fully on board. This Conference provides the opportunity tomake a qualitative leap forward.

We need to move away from an end of pipe approach. We need not only address theproblems but address the causes of those problems.

We need to lay emphasis on what I call the "win-win" aspect of environmental policy, inother words the self interest of other economic sectors to restore and safeguard theenvironment as the resource stock on which they depend in the short and long term.

In the Environmental Action Programme which was discussed yesterday the importance ofmoving towards sustainable development is emphasized in relation to short term actions inEastern and Central Europe. It needs to be taken to heart and to be seen as the driving forcewhich underlies the approach to the environment across the whole of Europe for the rest of thedecade and beyond. We in the Commission are committed to this approach and in our contactswith our European partners we shall be putting increased emphasis on it. It will underlie thecooperation which will take place in the European Economic Area; it underlies the Accessionnegotiations. It will be one of the basic approaches in implementing the agreements with ourpartners in Eastern and Central Europe, in which we have been a major player from the verybeginning of cooperation with the region notably through the PHARE programme.

Ministerial Conference, Luzern, 28th - 30th April, 1993 52

All of this requires a coordinated approach.

In the context of the G-24 cooperation with Central and Eastern European countries theCommission has striven to make sure that assistance in the field of the environment wascoordinated as effectively as possible. We are now trying to achieve the same coordinationwith G-7 activities. I sincerely hope and believe that the work we are carrying out on theEnvironmental Programme for Europe will result in a better strategy and improvedcoordination.

I welcome the initial elements of that Programme, as presented to us by the Senior Advisersof the United Nations Economic Commission for Europe. I consider it to be a good omen forthe further development of this Programme that it is intended to achieve sustainabledevelopment throughout the whole continent of Europe.

To turn to the specific theme of this session: Good environmental information forsustainable policy development is vital.

The transition to sustainable development requires a new decision making approach within arange of inherently complex options. It is essential that informed choices are made, and that thefuture Environmental Programme for Europe (EPE) becomes an effective tool towardssustainability. One major challenge is to ensure that actions are founded on sound (objective,reliable and comparable) environmental information.

The supply of such information is a complex multi-disciplinary task requiring closecooperation between countries and organisations. This is essential if the fragmentation ofresponsibilities is to be redressed, efficiency improved and the needs of the environmentproperly considered. In addition this information should be fully and widely accessible. Theimportance of this has been shown over the past 20 years where one of the major forces forenvironmental improvement has been increased public awareness and pressure.

This contrasts starkly with the state of environmental information in most Europeancountries and in particular with the limited access to information in the past in Central andEastern Europe. Let us not forget that the democratic deficit is largely an information deficitand that the process of democratization in Central and Eastern Europe started with glasnost.

The need for transparency in environmental information, including the public right to know,has been underlined by successive ministerial meetings since Bergen (Dublin, Dobris) as well asat Rio (Chapter 40 on "Information for Decision-Making"). Within the EC the commitment tothis is manifested by the Directive on freedom of access to information on the environment aswell as the Regulation establishing the EEA.

The diffusion of environmental information should be seen as part of a longer term strategyto foster public awareness and education. Private sector groups, NGOs, trade unions andprofessional bodies should be encouraged to contribute to this broader goal.

Cooperation between organisations is not on its own sufficient to ensure that soundenvironmental information, for the purpose of European environmental protection, isforthcoming. To achieve this, an integrated, pan-European system is required to gather,analyse and interpret environmental data, and to rectify the problems and inadequaciesassociated with the supply of objective, reliable and comparable environmental information.


The European Environment Agency, which we all hope will be established very soon, isdesigned to be able to provide this framework and supply policy makers and the public alikewith sound environmental information. The establishment of the EEA, with the expectationthat countries outside the Community will join, will be a useful tool for strengtheningenvironmental management in Europe, indeed one which is essential.

The Commission has already done extensive work in the field of environmental information,via the COR1NE Programme (Coordination of information on Environment 1985-90), viaEUROSTAT, and in the programmes of the Directorate General for Research and the JointResearch Centre, and the Community Bureau of Reference.

As an example of a new initiative, the Commission has made a proposal concerning thecreation of a European Network for Research in Global change ENRICH, which would covernot only Central and Eastern Europe but also the Mediterranean Basin and other developingcountries in Africa.

I should now like to turn to the pan-European State of the Environment Report, Europe'sEnvironment 1993, whose preparation has already created a "network" of valuable nationalcontacts for environmental information exchange throughout Europe upon which the EEA willbe able to build.

I would take the opportunity here, on behalf of the Commission, to thank all those who arecollaborating with us in this difficult task.

Europe's Environment 1993 will focus on certain environmental problems of pan-Europeanimportance such as acidification of soil and surface waters, the availability of freshwaterresources, the problems of urban air quality, and nature conservation and biodiversity.

The report will also treat global environmental problems such as climate change, andstratospheric ozone depletion.

Although the report has yet to be completed and the data fully processed, what is emergingis a mixed picture with improvements in some area, but deterioration in others. What is clear isthat much remains still to be done.

The guiding principles in all the efforts needed to safeguard the European environment arethose of sustainable development and preventive and precautionary actions. The integration ofenvironment into sectoral policies, such as agriculture, industry, transport, energy, tourism,must continue to be pursued, always respecting subsidiarity and shared responsibility.

In conclusion, let me again emphasize that we have arrived at a turning point in our thinkingabout environmental issues. Environmental destruction still proceeds at a faster pace thanenvironmental action. What is at risk is the lives of our children, the future of this planet. Letus take up the task of saving the environment seriously. The Commission of the EuropeanCommunities is ready to extend a hand to all its European partners, so that altoghether we maystrive towards survival and sustainable development.

Ministerial Conference. Luzern. 28ih - 30th April, 1993 54

Item 3.2: Innovative Instruments of Environmental Policy

Keynote Speech

by

Minister Svend AukenDenmark

1. Introduction

Thank you very much for allowing me to be the key-note-speaker on the important issue ofeconomic instruments in environmental policy.

The use of economic instruments is particularly interesting in an international relation.Therefore this topic is highly relevant today and will be even more so in the future.

2. The use of economic instruments

In recent years in most OECD-countries the traditional forms of regulation in theenvironmental policy - the so-called command-and-control regulation - have beensupplemented with economic incentives.

This should be seen as a development of the "polluter pays" principle. At the same time itreflects a growing interest in market-based environmental management.

There is a strong feeling that economic instruments can force private enterprise to makeeconomic decisions which effectively take environmental considerations into account.

In general, the use of environmental taxes and charges are options when individuals or firmsare not paying the full environmental costs (or reaping the full benefits) of their activities. Theymay encourage people to think in alternative ways.

Many OECD-countries are using emission charges, product charges, user charges, deposit-refund systems, etc. in areas related to water, air, and solid waste. Often in combination with areduction of subsidies.

Many Economies in Transition also use economic instruments.

However, a strong commitment to integrate environmental and economic policies is stillneeded. Protecting the air, waters, soil, and the "living nature" is important and urgent; but sois strengthening the economy.

In fact, the increasing unemployment, the economic recession, the large budget deficits, andthe longer-term competition problems have raised the question whether environmental andeconomic policies are compatible at all.

This goes for OECD-countries as well as for Economies in Transition.

One way of enhancing this compatibility is to introduce new environmentally related taxes andto adapt existing fiscal structures to comply with environmental concerns.

Ministerial Conference. Lu/.crn. 2Sih - 30th April. 1993 55

One of the interesting conclusions in a recent report made by an OECD-Expert Group oneconomic instruments is that fiscal or tax policies can and must be made mutually reinforcing,and that one way of achieving this is to increase the application of environmental charges andtaxes - the so-called "eco-taxes" or "green taxes".

I myself have spent some time analysing the arguments, because they represent possible waysof avoiding conflict between economic and environmental objectives. The unemployment ratein the OECD-countries and in the Economies in Transition makes it imperative forenvironmental managers and economic policy makers to improve market incentives in.order toraise the efficiency of our economies and at the same time improve the quality of ourenvironment.

3. Objectives of the use of environmental taxes

At present more taxes on wages, income, and profit only tend to penalize productive activitiessuch as work, savings, investments, and entrepreneural undertakings. This, again, leads tohigher unemployment due to the curbing of new investment and creative effort in society.

1 have little doubt that the necessary cure for this is to reduce conventional taxes and replacethem with environmental taxes and charges. Making a policy change of this type feasible is oneof the most important political tasks that lie before us.

Environmental taxes must be charged at a level that make polluters and others who degradeour environment realize the full cost of their activities.

When the environment is harmed the consequences are suffered by everybody and not just theindividual or firm responsible for the damage. Although command-and-control regulations seekto force polluters to limit their activities the results are often administratively cumbersome andeven more important - technologically inefficient. Environmental taxes will ensure that costsare charged solely to those responsible while at the same time allowing them flexibility indeveloping solutions.

Moreover, some environmental problems cannot be eliminated through regulations because theindividuals causing the problems are too numerous and diverse. Traffic congestion, solid wastegeneration, carbon dioxide emissions, and pollution from a vast number of agricultural sourcesare examples of this.

International transportation is especially remarkable due to the fact that the cost oftransportation today is so low that goods are being transported from one part of the world toanother without taking the environmental damage into account.

Furthermore the low energy prices favour individual transportation compared to publictransportation, which is much more benign to the environment.

As an example we might take the fact that the increase in goods transported on roads in thelast two years in Western Europe equals the total amount of goods being transported byrailways.

Therefore international transportation must be levied with internationally agreed environmentaltaxes to a degree where this distortion to the harm of the environment is removed. And therevenue of these taxes might be used as a financing mechanism in environmental protection inCentral and Eastern Europe.

Ministerial Conference, Lu/.ern. 28ih - 30th April. 1993 56

I think that by contributing to a better pricing of the environment and a more efficient use ofresources an increased use of environmental taxes may bring changes in the economic systemand turn it in an environmentally sound direction.

4. Criteria for the introduction of environmental taxes

In order to succeed environmental taxes must meet a number of criteria:

* the institutional framework must be designed in close cooperation between the ministries ofenvironment and the ministries of finance or taxation

* the link between taxe base and pollution must be as clear as possible

* combined strategies must be developed to allow for the use of non-fiscal policies (i.e. directregulation) and environmental taxes as part of a "package" where other taxes aresimultaneously reduced, or other means of offsetting any undesirable social consequences aretaken into acoeunt

* decisions on the use of the revenue raised must be an integral part of the package - whetherthe revenue is earmarked or not. In my opinion the cost of government environmental policiesshould normally be covered by the general budget. However, earmarking the revenues forenvironmental purposes may be warranted in certain cases, particularly in a transition periodwhen new environmental activities are introduced. Cleaning up pollution from the past such asthe old chemical deposit sites that are scattered all over Europe may be another point in case.Environmental investments to promote environment and employment at the same time may bea third one.

* taxes may need to be introduced gradually in order to allow producers and consumers thetime necessary to change their habits and conduct. And it should be emphasized that a conflictbetween fiscal and environmental aims may arise, since a fully efficient environmental tax willnot create revenues once it becomes effective in changing behaviour.

* the taxes must be simple and transparent. That they must not result in heavy administrativecost goes without saying. This applies to all economic instruments.

* moreover, the operation of the tax must be closely monitored in order to take the rate ofinflation, the cost of environmental damage, and the administrative cost into consideration.

Finally, the international effects of any significant new environmental tax must be taken intoaccount. This applies to a country unilaterally introducing an environmental tax as well as theuse of environmental taxes to deal with global pollution problems such as CO2. Theseconcerns inevitably lead to a need for increased international cooperation - particularly in thedeveloped part of the world which carries the main responsibility for the global state of theenvironment and for financing the improvement of it or - at the very least - the prevention offurther deterioration.

5. Technology cooperation as part of the environmental policy

I have briefly discussed the use of economic incentives as an important innovative instrument inthe environmental policy.

Another important innovative instrument in a market-based environmental policy is thedevelopment and regulation of the environmentally related technology used in individual

Ministerial Conférence. Lu/ern. 2Kth - 30th April, 1993 57

companies, and technology cooperation in this field.

Until recently pollution control was normally based on an approach which consideredemissions into the air, water, and land separately. I think that this was true for almost all of ourcountries.

This fact is reflected in the Environmental Action Plan, too. It contains a number of examplesof air emissions and run-off from land which have been recognized as major contributors towater pollution. And on land, too, where emissions into the air have led to the contaminationof farming land and water. In most cases the administrative attempts to address these problemshave been to look at them medium by medium, often leading to disproportionate pollutionproblems in other media.

Increasingly, however, it must be recognized that no part of the environment is separate fromanother. The environment functions as an integrated whole. This was also recognized by theBrundtland-Commission which in the concept of sustainable development referred to theenvironment as a whole and not just the individual media of water, air, and land.

Our efforts should be directed at overall prevention to avoid mere transfer of pollution fromone part of the environment to another. Technological development must be directed to copewith the total impact on the environment.

When existing pollution threatens the basis of life it goes without saying, of course, thatprevention of future damage must be somewhat out of focus. Coping with actual problems andpreventing future problems must be parts of the same overall picture. Thus, strategy for the90s in Eastern Europe is to clean up without forgetting to start a prevention strategy based onclean technology. Prevention efforts, however, must be a top priority.

A crucial element in bringing the best available technology into the market-place is to improvetechnology cooperation for a better environment between all countries represented at thisconference. Part of that cooperation, of course, should be directed at facilitating the transfer ofrelevant technology to the developing world in order to improve the environment globally.

6. Conclusions

Finally, allow me to sum up: Environmental taxes and charges have turned out to be keyfactors in the efficient integration of environmental and economic policies of the OECD-countries. I am sure it will be an extremely important issue for Economies in Transition as well.A reform of the tax system in these countries offers an opportunity to take the environmentalobjectives into account from the very beginning.

Let us attempt to shift a substantial part of the tax burden from activities we want to encourage- like work and investment - to activities we want to discourage - like pollution, inefficiencyand waste. In other words, let us combine forces to put more taxes on "environmental bads"and fewer on "environmental goods".

My end remark will be a hope that we, starting at this Conference, in the near future will beable to agree on the introduction of fiscal instruments to reduce the emission of CO2 in orderto reach the reduction targets set in the Climate Convention. Internationally introduced fiscalinstruments have the clear advantage that it does not harm the competitive position of onecountry alone, but benefits the environment worldwide. Holding the Presidency of theEuropean Community, it gives me great pleasure to inform you that last Friday eleven out oftwelve member countries agreed on the introduction of CO2 fiscal instruments in the EC.

Ministerial Conference, Luzcrn. 2Xlh - 30th April. 1993 58

Item 3.2: Innovative Instruments of Environmental Policy

Presentation

by

Mr. Pierre Vinde

Deputy Secretary General, OECD

1. I am grateful to have the opportunity to participate in this discussion of an issue withwhich the OECD has been concerned for a number of years.

2. OECD — and other -- Governments have historically relied on command-and-control re-gulation to achieve environmental goals. Regulations could be firmly enforced and moni-tored, given the will to do so. Providing that the standards and targets they set were rea-listic, regulations provided reasonable assurance that the intended environmental objec-tives would be met. They also disguised the full economic costs of achieving those ob-jectives, which many governments found advantageous.

3. However, three factors have converged in recent years to stimulate governments to ex-plore other management strategies and tools. First, regulatory approaches have becomeincreasingly complex, administratively burdensome, and costly, for both industry andgovernment. Second, command-and-control measures are more difficult to apply totransboundary environmental problems, and to global-scale threats. And, last, the costsof incremental improvements to environmental quality have been rising. At a time ofeconomic slowdown and recession in OECD countries, this has triggered an intensivesearch for alternative, innovative strategies and instruments.

4. Time does not permit me to elaborate on the many innovative approaches which arebeing designed, introduced and tested today within OECD Member countries and else-where. I will just identify a number which we in the OECD believe have particular pro-mise. They deserve inclusion in the Environment Programme for Europe — either forearly application or as elements of a research and development strategy. This list inclu-des:

o the use of market-based instruments — environmental taxes and charges, andtradeable permits; here, the OECD Guidelines for the Use of EconomicInstruments in Environmental Policy should be of assistance.

o tax policy reform, to favour environment-friendly behaviour and natural resourceconservation, whilst keeping the overall tax burden unchanged. On this, an OECDJoint Task Force of Taxation and Environment experts has recently produced avery thoughtful report which I believe offers many useful pointers for Central andEastern European countries, as well as for those of the OECD. To emphasize this,we hosted a Workshop in February on Taxation and Environment in EuropeanEconomies in Transition;

o voluntary agreements between Government and industry;

Ministerial Conference. Lu/.ern. 2Xih - 30th April, 1993 59

o product labelling designed to change consumer behaviour and preferences;

<> full-life-cycle-analysis of products to determine at what stage emissions ofpollutants, wastes, and resource conservation can be addressed most cost-effectively;

o joint, implementation projects between governments, which can help ensure that re-gional and global-scale problems are addressed at least cost. The EnvironmentalAction Programme about which we heard earlier, has many constructive ideas tooffer on this issue; and the OECD's analyses on the global economics of climatechange, using our so-called "Green" model, can provide some illuminatingbackground information for policy-makers;

o the identification and elimination of conflicts between various areas of governmentpolicy, e.g. the use subsidies in the agriculture, energy and transport sectors whichoften conflict with environmental goals;

and,

o the design of pollution prevention strategies, through modification of productionprocesses. These have considerable cost advantage over end-of-pipe controls andafter-the-fact clean-up programmes.

Just a few words, in general, about these innovative approaches. All require furtherdevelopment and assessment. Such work, underway in the OECD and elsewhere, mustbe continued, and information exchanged rapidly and regularly on what works and whatdoesn't. Such an analytical and information exchange function should be an integral partof any Environmental Programme for Europe. I am pleased to see that the Reportprepared for this Conference by the ECE Senior Advisers highlights this important issue.We in the OECD stand ready to play our part.

The need to apply innovative policy instruments to achieve environmental objectivesmore efficiently and effectively is, I am sure, felt by all Governments around this table.The particular constraints existing in Central and Eastern Europe make this challenge allthe more intense. The severity of environmental problems and the lack of resources toaddress them requires fresh thinking and, arguably, approaches at least as radical as thoseso far employed in many OECD countries.

The list I offered of promising innovative approaches was not a series of "either/or"choices. OECD experience and advice is that sound environmental management dependson a judicious selection and use of a mix of tools. This was the clear conclusion of thefirst High-level Session of our Environment Policy Committee held earlier this year. Forexample, while the application of economic instruments to environmental management isexpanding rapidly in OECD countries, they are invariably being used in combination withgovernment regulations, and not as a substitute.

The trend today is for Governments first to establish long-term performance objectivesand quantitative targets through legislated regulation. They then look to market-basedinstruments, especially charges and taxes, and to voluntary agreements, to find the mostcost-effective path towards the target. This is at the heart of the "strategic planningapproach" adopted and advocated by the Netherlands - an approach that we believe hasmuch to offer.

Ministerial Conference. Lu/.em, 28th - 3(.)lh April, 1993 60

One final observation. There are not any magic solutions to deal with everyone's en-vironmental problem. The choice of instruments and approaches will continue to differfrom country to country, based on a range of factors: environmental conditions andpriorities; culture: and their traditions of law, administration and institutions.Nonetheless, there are valuable lessons to be drawn from the experiences of others in thisrapidly evolving area — and we believe that substantial benefits will accrue to go-vernments, and to the international community as a whole, from intensified internationalcooperation and information exchange on environmental management trends, tools andstrategies. We in the OECD look forward to being active participants in this process.

Minisicrial Conleronce. Lu/cni. 2Xth - 30th April, 1993 61

Item 3.3: Monitoring, Compliance and Enforcementin Environmental Policy

Keynote Speech

by

Michael Howard

Secretary of State for the Environment, United Kingdom

1. Mr. Chairman, colleagues, ladies and gentlemen, let me begin with an apology for nothaving been able to be with you during the earlier sessions, and in particular for the start of thissession. I am afraid that my presence was required at Cabinet yesterday morning. As I am sureyou will all understand, it is a brave Minister who resists an invitation from his or her PrimeMinister no matter how attractive the competing occasion.

2. When William Shakespeare wrote of "A good plot, good friends and full ofexpectation..." it is unlikely that he had in mind a meeting of environment ministers.Nevertheless his words are appropriate. Lucerne has all three. The preparations for thisConference by our Swiss hosts have been first class - the plot is indeed good; discussions insuch agreeable surroundings with friends both old and new provide a solid foundation for ourexpectations of a successful outcome.

3. Before I turn to the main topic of the debate let me say a few words about thecircumstances in which we come together. The changes that have taken place in east andcentral Europe in the past few years have been as breathtaking as they have been welcome. Weface a prospect full of the potential for large and enduring improvements in the quality of life oftens of millions of people. But few people now underestimate the practical difficulties of atransition of this magnitude. When we, or our predecessors, last met in Czechoslovakia theeuphoria of change was overwhelming. Then the task was to define our shared aspirations forour common environment. Now our task is to turn those shared aspirations into commoninstruments for progress.

4. The legacy of environmental damage left by four decades of totalitarian rule is welldocumented. What is perhaps less well understood is that there was no shortage ofenvironmental legislation in east and central Europe during the Communist era. There washowever a total absence of the political will to enforce that legislation. And without the stimuliof freedom of speech and the competition of open markets it is not surprising that legislationdid nothing but gather dust. Those days are now behind us. Political reform and freedom ofspeech have opened the door to economic development and environmental improvement.

5. The Action Programme on the Environment, which I hope we will agree at this meeting,will take this change forward. It notes correctly that environmental improvements will largelybe the result of the efforts of the countries of Eastern and Central Europe themselves. Andperhaps the best way of all to help these countries to help themselves improve theirenvironment is to help them get their economies running efficiently. There is now a wideconsensus in the West that the health of the economy and the environment are mutuallyinterdependent. That is why I set such store by opening the prospect of eventual membershipof the Community to some Eastern European countries and why we must do all we can to

Ministerial Conference, Luzem. 2Xth - 30th April, 1993 62

open the Community's markets to our neighbours. And of course we can help even moredirectly.

6. I am pleased that we in the United Kingdom have been able to play our full part in thiseffort. We contribute just under 20% of the 1.1 billion ECU available through theCommunity's PHARE programme which has a strong environmental dimension. We havecontributed over 800 million ECU to the EBRD which has already helped to finance over 1.3billion ECUs worth of environmental improvements. The Global Environmental Facility of theWorld Bank, to which we are a significant contributor, is currently sponsoring over $50 milliondollars worth of projects to tackle global environmental problems and of course there is ourown Know Mow Fund with its budget this year of £50 million pounds and its dedicatedenvironmental tranche which focuses primarily on building environmental capability.

7. This Conference has already discussed environmental goals and the choice of instrumentsfor achieving them against this background. I was particularly sorry to miss yesterday'sdiscussion on economic instruments. This is an area to which we in the United Kingdom aregiving increasing attention. It is now our policy when considering new measures to protect theenvironment to look first to see whether there is an economic instrument that could achieve thegoal. As well as working with the grain of the market and avoiding the need to add to theburden of regulation on business economic instruments are self enforcing and so ease the taskof proper implementation of environmental policy. I look forward to studying what was said inthe debate.

8. Let me turn now to the topic of today's debate. I am honoured to have been asked tomake this address, and let me apologise again for not being able to make it at the beginning ofthe session. It is an aspect of environmental policy in which I take a particular interest. Nothaving suffered under the oppressive regimes of our eastern neighbours, we in the Communityhave no excuse for the hours and hours we have invested in the detailed negotiation ofenvironmental agreements only to then neglect the implementation and enforcement of themeasures so painfully agreed.

9. There is little which undermines public confidence in Government more than unenforcedlegislation. It fosters cynicism and discourages commitment to the common good. It brings thewhole concept of legislation into disrepute. This is particularly true in the field ofenvironmental legislation where the consequences of poor implementation and enforcement areoften all too visible.

10. Just as our citizens lose confidence in their own government if environmental legislationis seen to be unenforced, so, too, do governments lose confidence in each other wheninternational agreements are not properly implemented. We face a future in which protectingthe environment will increasingly become a shared task. If we are to sustain the confidenceneeded for international agreements to be made we are going to have to develop agreedapproaches to the assessment of compliance with national and international environmentalrules.

l l . l t seems to me that there are four issues on which we must make progress to achievethis goal.

12. The first is that of monitoring. It is obvious that if we do not measure what is happeningwe do not know whether corrective action is needed. We need detailed statistical informationabout the state of the Environment in Europe, both East and West, and I look forward toseeing the work which this Conference has set in hand. I also believe it is particularly importantto offer technical support and advice to those who have hitherto lacked the resources or access

Ministerial Conference, Lu/.ern, 28th - 30th April. 1993 63

to expertise to develop satisfactory domestic monitoring arrangements. And it is vital to ensurethat the European Environment Agency is up and running as soon as possible. It is equally vitalto enlarge its membership as soon as we can so that we have comparable data for the whole ofEurope.

13. The second key issue is the transparency of information and public participation. I haveno doubt that the best enforcers of environmental legislation are the public. But they can onlycarry out this task if they are properly informed about what is happening to their environment.

14. The most direct way in which the public can participate is through their choices in themarket place. We have all witnessed the emerging power of the green consumer. But, marketscan work properly only if consumers have access to information and that information must beaccurate and standardised. That is why the recently agreed Eco-labelling Directive is soimportant. Over time it will provide consumers throughout the European Community withreliable, systematic information on the relative environmental impacts of a very wide range ofgoods.

15. The same is true for environmental policy. If we enter into an international agreement,arrangements should also be made to make available to the public information about progresstowards achieving our commitments. For example, in the follow up to the Rio Conferencecountries will be expected to produce national plans to explain how they are going to achievetheir commitments on climate change, biodiversity, forests and national sustainability.

16. Two key pieces of EC legislation reinforce our domestic arrangements. There is aDirective requiring member states to report information about compliance with EC measures ina standardised form. We are also in the process of implementing a new Directive on Access toFreedom of Environmental Information.

17. The third key element in developing a rigorous implementation regime is the need forperformance review. No one expects to achieve their objectives in the field of the environment- or in almost any other field you care to name - without learning some lessons in the process.That is the advantage of building in a system of review into any environmental agreementsreached. So, in the Rio context for example, we expect that the national reports to theCommission on Sustainable Development will be subject to review.

IS. Many of you are familiar with the OECD's economic reviews which have played suchan important part in the development of economic policy. You will no doubt be aware that theOECD has now begun a similar environmental review process. This is a valuable way ofidentifying strong and weak points in a country's programme. In my view, an extension of thiswork could be helpful for the countries of central and eastern Europe and 1 welcome theproposal to undertake three pilot reviews in this region looking not only at environmentalproblems, but also at the question of the most appropriate methodology and the resourceimplications of such an extension.

19. The fourth element is enforcement. Proper implementation and enforcement ofenvironmental law is of paramount importance. In the European Community the lack ofeffective compliance not only has serious consequences for the environment. It also createsdistortions of competition within the single market. Inadequate implementation alsoundermines the credibility of the Community and encourages a lack of realism in negotiation ofnew legislation. There seems to be an inexorable law whereby those who are often high biddersfor new legislation are those who are also least keen on vigorous enforcement.

20. I am glad to say that the Commission has done a good deal recently to improve

Ministerial Conference, Lu/.ern, 28ih - 30th April, 1993 64

compliance and implementation. But more needs to be done to ensure proper enforcement. Inparticular, we must begin to move from a complaints driven procedure, which penalises thosecountries whose citizens happen to complain most frequently or whose pressure groups arebest organised, towards a more even-handed analytically driven approach.

21. There is also much to be said for informal contact. In the European Community,following a Dutch initiative, the United Kingdom presidency set up a network for exchanginginformation between enforcement practitioners in the EC. The practice of enforcing modernpollution and control systems and legislation is still in its infancy. Contact between the variousenforcement agencies should help to improve both the overall standards and to bring aboutgreater consistency of approach. But 1 have no doubt that, in time, there will be a need for aCommunity-wide "inspectorate of inspectorates" or "audit inspectorate", that will have the taskof ensuring that the enforcement agencies of member states reach agreed standards ofcapability.

22. Mr. Chairman, ladies and gentlemen, I have no doubt at all of the importance of thistopic. Our success or failure in devising a robust international regime for ensuring the effectiveenforcement and implementation of environmental legislation is one of the keys to maintainingthe confidence of both the public and the business community. Without that confidence it willbecome progressively more difficult to build the agreements necessary to tackle environmentalproblems. I look forward with considerable interest to hearing your views on these vital issuesduring the remainder of this session.

MinislcriiJ Conference. Luzern. 28th - 3()lh April. 1993 65


Presentation

by

Mrs. Carol BROWNER

U.S. EPA Administrator

Thank you, Minister Alders, and a special thanks to Minister Dreifuss and the Governmentof Switzerland for hosting this Conference of Ministers. It is a pleasure to meet so many of youand I look forward to working with each and every one of you.

The new Clinton Administration brings a strong and vigorous commitment to environmentalprotection, both domestic and international. Just a week ago, on the day Americans celebrateas Earth Day, President Clinton announced our intention to sign the international biodiversitytreaty and take action to reduce U.S. greenhouse gases to 1990 levels by the year 2000.

As President Clinton said in his Earth Day remarks: "In an era of global economics, globalepidemics and global environmental hazards, a central challenge of our time is to promote ournational interest in the context of its connectedness with the rest of the world. We share ouratmosphere, our planet, our destiny with all the people of this world."

We are here in Lucerne to continue the work begun at the Dobris Conference in 1991. TheU.S. Government is pleased to be a part of this effort, for we believe that the long-termenvironmental and economic health of our nation is inextricably bound to yours. We mustwork together to ensure the quality of life for all the people of this planet.

Not only must we work together between nations, we must also develop a new spirit ofpartnership with the public in each of your countries, with all that have an interest in theseissues: the private sector, industries, NGOs and citizens. At Dobris we recognized the value ofa well-informed and involved public. The Declaration called for countries to base theirenvironmental policy on sound democratic principles. It recognized the importance of dialoguebetween governments and the public.

These same conclusions were reinforced at the U.N. Conference on Environment andDevelopment last year in Rio.

We are not here today merely to repeat the conclusions of Dobris and Rio, but rather tobuild on them. We are here to take concrete steps that will promote greater public participationin all our nations.

These steps must be based on two fundamental principles. First, the public has a right toknow, a right to know environmental information related to health and safety in theirneighborhoods and their country. Second, an informed and involved public is our best ally for aclean environmental future.

The power of knowledge and the value of public participation are obvious to all. Informed,involved citizens are the life and breath of any healthy, open society, and any smoothly-

Minisleriu] Conference. Lu/.em. 2Xth - 30th April, 1993 66

functioning democracy. Informed, involved citizens are equally essential to any effort toprotect the environment.

Recent history in Central and Eastern Europe has shown how people linked together by acommon concern for the environment can be a powerful force for much broader politicalchange. Environmental issues and NGOs -- including the Slovak Union of Landscape andNature Protectors, Ecoglasnost in Bulgaria, Green World in Ukraine and the Polish EcologicalClub - were central to the moral and political leadership of the revolutions that began in 1989.

In the United States and other countries represented here, we have seen many examples ofthe value of informed public participation.

Through riverwatch programs like those in Poland, Hungary and other countries, privatecitizens actively monitor pollutants entering their rivers, thereby expanding government'scapacity to enforce environmental protection objectives.

Because of their unique knowledge of local conditions, citizens have brought forth betteralternatives to proposed government projects.

When citizens are informed and involved, industries have shown a willingness to takeenvironmentally-protective actions before government requires it. Or they may take actionbeyond to provide the public with emissions information from all of its European facilities.Twenty-five European members of the Chemical Industry Federation of Europe will do thesame beginning this year.

Clearly, informed public participation has political, economic, and environmental advantagesthat cannot be ignored.

We at this conference can take steps to nourish the seeds of public participation in everycountry. We can improve our efforts to educate the public on environmental issues. We canestablish legal, regulatory, and administrative mechanisms that enable public participation,including access to environmental information; the opportunity to attend and participate inpublic hearings; the opportunity to review and comment on proposed decisions and actions;and the opportunity to seek administrative or legal remedies.

Also, we can cooperate with international organizations like the OECD, IPCS, and the ECEin providing countries with training, guidance and technical assistance on public participation.And we can encourage industry in all countries to take voluntary steps to inform the publicabout their activities.

Every country can improve its efforts to enable public participation. Just last week, in fact,President Clinton announced that all U.S. government facilities will provide to the publicemissions inventories like the ones required of our private companies. Previously, U.S.government facilities were not subject to right-to-know laws. Now they are, and the Americanpeople are applauding.

Our countries may differ somewhat in our methods of involving the public in democraticgovernance. However, we should support and realize even greater levels of public participationin all our countries. Thus, 1 urge that the Ministers endorse and undertake the public-participation actions referred to this conference by the Senior Advisers to the ECEGovernments.

In conclusion, let me emphasize that we have nothing to fear from public information andparticipation, and we have everything to gain.

Minisicrial Conference. Luzern. 28th - 30th April. 1993 67

An informed public will help us make better decisions, decisions that will lead to better livesfor all of us. And citizens that are involved, that participate in the decisions of government, willsupport the decisions of the government. In our efforts to protect the environment, wesometimes have to take actions that are costly and uncertain and politically risky. If we want tominimize the costs and uncertainties and political risks, an informed, involved public is our bestally.

Our generation of international leadership, more than any other, has been vested with agreater responibility for this planet. We have the most advanced understanding ever of theenvironmental consequences of our actions, and we see more clearly the potential effects ofour policy decisions. We are literally the stewards of the quality of life that our children willinherit. Their future is our legacy. We will exercise real influence over the very air that theybreathe, the water they drink, the natural resources they must depend upon. The very shape ofthe world they will inherit is in large measure — and like at no previous time in history — oursto mold.

As representatives of democratic governments, we have the responsibility to protect theenvironment for all our people, using the talents and the energy of all our people.

Public participation ties us all together — citizen with government, country with country —present with future. It is a tool we must use, for our children and our children's children.

Thank you.

Ministerial Conference. Luzcrn, 28th - 3()ih April. 1993 68


Presentation

by

Mr. G. HINTEREGGER

UN/ECE Executive Secretary

On behalf of the United Nations Economic Commission for Europe (UN/ECE), I would liketo express our sincere thanks to the Government of Switzerland for hosting this conferenceand for the warm and generous hospitality extended to us. My sincere thanks go also to allthose who have helped to prepare the conference.

I feel privileged to be invited to address this important gathering on one of the central issuesof our agenda: monitoring, compliance and enforcement in environmental policy. For manyyears, the UN/ECE has served as a regional forum for cooperation in the field of environment.The confidence of member governments in the UN/ECE's capacity and efficiency to elaborateand implement legal instruments, to develop regional environmental policies, to promotesustainable development and to provide assistance to countries in transition has beenmanifested on many occasions and most recently at this year's annual session of ourcommission which ended earlier this week.

What are the specific features of the UN/ECE as the regional organisation of the UnitedNations?

(1) The UN/ECE continues to be the only truly pan-European and transatlantic forum forthe cooperation in the field of environment in which all member countries participate on anequal footing. At present, its membership stands at 45 countries comprising all Europeancountries, the United States, Canada and Israel. Six newly indépendant republics of the formerSoviet Union in Transcaucasia and Central Asia will join our Commission soon.

(2) The UN/ECE has a sophisticated and well-functioning structure of inter-governmentalbodies. In the field of environment, the Senior Advisers on Environmental and Water Problemstogether with their subsidiary organs have proved to be a very imaginative, productive andcost-effective machinery for the elaboration of legal instruments and environmental strategies.

(3) Environment has been designated a priority area and sustainable development a guidingprinciple by our Commission. The multisectorial nature of our programme of work includingtransport, energy, industry, agriculture and human settlements enables the UN/ECE to dealwith the complex problems of sustainable development in an interdisciplinary fashion.

(4) Several decades of experience of cooperation with the former centrally plannedeconomies have provided the UN/ECE with a particular insight into and understanding of theproblems and difficulties of the countries in transition to market economies.

Let me now comment on some of the main aspects of the agenda item under discussion;

Ministerial Conference. Lu/.orn. 2Xlh - 30ih April. 1993 69

During the lust 15 years, eight international legally binding instruments, 4 conventions and 4protocols, have been developed in the UN/ECE on air pollution, environmental impactassessment, industrial accidents and transboundary waters. The importance of these legalinstruments as effective tools to promote active, direct and action-oriented internationalcooperation at the regional level is growing in view of the Commission's increasingmembership and, consequently, the growing potential for transboundary environmentalproblems. These conventions, which are important elements of a common European legalframework, are concrete and effective instruments to eliminate the former dividing linebetween east and west and to integrate countries with economies in transition into a pan-European legal and economic space.

However, these conventions would not fully achieve their purpose if they were to remainmere expressions of goodwill on the part of member States. The significance of legalinstruments agreed upon within the UN/ECE lies in the fact that they are rapidly and efficientlyimplemented and complied with by as many member countries as possible, and translated intopractical rules and regulations at the national level. There is an urgent need for all membercountries which have not yet done so to ratify or adhere to these instruments in order to makethem fully operational on a region-wide level as soon as possible and to ensure thatenvironmental considerations do not slip down the list of national priorities in certain countries.

In the light of these considerations, the Commission decided at this year's annual session toundertake the development of more systematic implementation and verification measures forUN/ECE environmental conventions, taking account of the particular problems of countries intransition. Strengthening the national capability of countries in transition to meet theirobligations under the conventions is of paramount importance to all countries of the region.

The UN/ECE agreements on air pollution have been under implementation for quite sometime, and questions of compliance with agreed commitments are being brought to the attentionof the Contracting Parties periodically, in particular regarding the sulphur protocol whosetarget year for a 30 per cent emission reduction is 1993. If most recent estimates areconfirmed, we will reach this target by the end of this year, not only for the Parties to theprotocol but for the UN/ECE region as a whole. As regards the technical compliancemonitoring, i.e. monitoring of emissions and transboundary fluxes, the air pollution agreementsare equiped with a well-established supervisory mechanism, namely the specific monitoring andevaluation programme carried out by EMEP under a protocol to the Convention on Long-range Transboundary Air Pollution. EMEP consists of over 100 national measurement stationsin more than 30 countries implemented by the participating countries, fully coordinated bythree international EMEP centres.

National reporting on the implementation of environmental conventions plays an importantrole in verification of compliance with relevant obligations. Such reporting should beperiodical, detailed, transparent and revealing. There is a well-established procedure ofpreparing periodical reviews of national policies and strategies on air-pollution control underthe Convention on Long-range Transboundary Air Pollution. Following the agreed-uponguidelines, the Parties to this Convention submit to the secretariat quadrennial in-depthnational reports and, annually, information on changes in respective policies and strategies. Thereviews prepared by the secretariat on the basis of this information are being discussed by theExecutive Body for the Convention, and then published for wide dissemination.

Ministerial Conference, Luzem. 28lh - 30th April, 1993 70

The Signatories of the 1991 Convention on Environmental Impact Assessment in aTransboundary Context, the 1992 Convention on the Transboundary Effects of IndustrialAccidents, ami the 1992 Convention on the Protection and Use of TransboundaryWatercourses and International Lakes have also taken steps for undertaking reviews of theimplementation of these conventions pending their entry into force.

An urgent need was recognised within the UN/ECE, for strengthening capabilities ofcurrent or future Parties to comply with obligations under environmental conventions. Manygovernments would benefit from assistance in building the necessary administrative and legalstructures, including national enforcement and implementation mechanisms so as to facilitatefulfilling the requirements. Assistance is particularly necessary in order that all countries intransition, including the newly indépendant States in the region, be able to ratify or accede toenvironmental agreements and to implement them.

The Executive Body for the Convention on Long-range Transboundary Air Pollution isdeveloping procedures to create more favourable conditons for the exchange of technologywith the aim of reducing air pollution emissions. A workshop held last March in Viennaelaborated proposals on facilitation of exchange of technology for the purpose of secondgeneration protocols for emission reduction. Similar arrangements are being made under theother environmental conventions.

The extension of the system of national environmental performance reviews developed byOECD for its member countries, to the whole of Europe could also play an important role inhelping countries, particularly those in transition, improve their performance with regard to theachievement of international commitments. This would be a new and promising avenue forcooperative efforts between UN/ECE and OECD which have already proved to be effective infields of management of hazardous chemicals as well as environment and economics.

Public participation in environmental decision-making, based on increasing public awarenessof, and access to, environmental information, is crucial for the success of environmentalpolicies in general, and for the implementation of international commitments, in particular.Principle 10 of the Rio Declaration on Environment and Development calls on States to makeinformation widely available so as to facilitate and encourage public awareness andparticipation. It is worth noting in this respect, that the recent UN/ECE environmentalconventions on EIA, transboundary waters and industrial accidents include detailed provisionsencouraging public involvement in environmental decision-making. These provisions couldserve as a possible model in the further elaboration of international environmental law.

Parties to the EIA convention, for instance, will be obliged to establish a procedure thatpermits public participation. The Party of origin of a proposed activity, which is likely to causesignificant adverse effects on the environment of another Party, shall ensure that opportunityprovided to the public of the affected Party is equivalent to that provided to the public of theParty of origin. In the industrial accidents convention natural or legal persons who are capableof being adversely affected by the transboundary effects of an industrial accident shall beprovided equal access and treatment in the relevant administrative and judicial proceedings.Parties to the water convention will be obliged to ensure public access to the information onwater-quality objectives, permit conditions, results of monitoring and assessment, and resultsof checking compliance with the water-quality objectives or the permit conditions.

The Senior Advisers to UN/ECE Governments on Environmental and Water Problemsundertook the examination of environmental rights and obligations in the light of the UNCEDoutcome on the subject. Experience of individual countries will be reviewed and areas ofpossible cooperative action identified. Such action should ensure the right of the public, both

Ministerial Conference, Luzem. 28th - 30th April, 1993 71

individuals and NGOs, to know about environmental information, provide for disclosure ofsuch information by government and industry, as well as ensure the establishment andimplementation of effective mechanisms that encourage public participation in decision-makingconcerning the environment, including relevant administrative and judicial review procedures.

Mr Chairman, distinguished Ministers, ladies and gentlemen,

This short review of the work undertaken under the auspices of the UN/ECE in the field ofenvironmental conventions is evidence of the potential of the organisation to accomplisheffectively and efficiently, with the indispensable help of member countries, the tasks entrustedto it. While the record is quite impressive, a lot has still to be done as documented by thisconference.

We appreciate the confidence in the UN/ECE expressed by numerous delegations whichprovides another strong impetus to our work. We will do our best to live up to theseexpectations.

Ministerial Conference. Lu/crn, 2Xth - 30lh April. 1993 72

Closing Session

Concluding Statement

by


Switzerland

I have assumed office only very recently and I know that those among us having held theirpresent responsibilities for a number of years already are not very numerous. The first thing Ihave therefore been impressed with at our meeting is the spirit of solidarity that guided all ourwork. Even, I believe, it has developed into a spirit of friendship which will form a solid basisfor our future cooperation. I was secondly impressed by the very concrete "down to earth"character of our discussions and the true wish to find solutions to the problems which we allhave to face. Thirdly, 1 was impressed by the fact that the protection of our environmentconfirms itself as one of the key forces in the construction of this new Europe.

The preparation of our conference enabled us to bring about convergences between all theactors concerned; first of all the governments of the European countries and those countrieswhich are especially concerned with promoting the European process: 1 particularly think hereof our colleagues from the United States of America, Canada, Japan and Australia. Equally didcontribute the intergovernmental organisations ,the financial cooperation institutions and thenon-governmental organisations representing various economic or ecological and socialinterests of our populations. The preparatory process thus created a climate of cooperation andcollaboration between all of us which still needs to be strengthend further.

I was struck by the modesty that we all share and which we all feel in front of theconsiderable challenges, we have to face. Modesty of ministers who are aware that theproblems cannot be tackled with any prospect of success without the participation of non-governmental and intergovernmental organisations; and the modesty also of ministers whoknow that priorities in the field of environment and in developing solutions to the graveproblems in the Eastern and Central countries in Europe cannot be set alone. We have allaccepted to participate in this process, which enables us to develop jointly our priorities for theurgent action programmes in the countries of Central and Eastern Europe. And we have agreedto concentrate the available means of which we are well aware that they are much too limited.

We show modesty also in affirming the need to integrate our sectoral policies into an overallpolicy in order to be able to promote sustainable development; therefore, more than ever, weare responsible as ministers of the environment to cooperate closely with our colleagues fromother sectors. I hence once again should like to express my satisfaction with the activeparticipation of ministries charged with financial and economic affairs, without whosecooperation our ambitious programmes could not be implemented

We have adopted in the course of this conference measures and strategies inspired by thismodesty and have achieved real progress. We have in this way reaped the fruit of an intensivepreparatory process and I should like, on behalf of all of you, thank the preparatory committeeof this conference and particularly the Executive Secretary, Mr. Thomas Litscher, and theChairman of the negotiating group, Mr. Wilhelm Schrrüd. Without their efforts we could nothave progressed as much as we did; and since you applauded me, I would also like you to give

Ministerial Conference. Lu/.ern. 28lh - 30th April, 1993 73

a hand to Mr. Litscher and Mr. Sehmid.

I would also like to pay tribute here to the effort made by non-governmental organisations,which together with the support of the local and cantonal authorities of Luzern organizedexibits, events and discussions which enabled the public to be associated with our work.

Last but not least I should like to express my gratitude to the government of Bulgaria foroffering to welcome the next conference in 1995. It is extremely important that this processcontinues. 1995 will be the time to assess the progress we will have made and to review howwe are living up to the commitments made here in Luzern.

I now have the pleasure to give the floor to Vice-Minister Natov from Bulgaria, and Iwould like to confirm Switzerlands support for the organization of our next meeting. May thisnext conference be held in a Europe at peace with itself and with the rest of the world. Thankyou.

Ministerial Conference. Lu/ern, 28th - 30th April. 1993 74

Closing Session

Concluding Statement

by

Vice-Minister Branimir NATOV

Bulgaria

(First part: translation from French)

I am pleased to convey to you the official message on behalf of the Prime Minister ofBulgaria. It is as follows:

In the name of the Republic of Bulgaria and in my own I welcome the efforts you areundertaking to accomplish a sustained policy of developing the environment in our region andin particular your preoccupation with the countries in Central and Eastern Europe.

The Luzern conference puts in concrete terms the aspirations of public opinion that thework of the Rio Conference of 92 and of Agenda 21 be continued. At the same time it reflectsthe desire of our governments to adopt specific measures which will provide for normalconditions of life for our people and for the protection of natural resources.

The government of Bulgaria, inspite of serious economic problems with which it isconfronted, makes great efforts to implement an environment policy designed to overcome thedamages afflicted to its unique nature during the past decennia.

Bulgaria is a country blessed by god, endowed with a varied and wonderful nature _mountains always covered with snow, wonderful cristal clear waters, forests almost untouched,fertile valleys and a sea with golden sands. We want to preserve this richness and restore thedamages caused, so that our country would again become a piece of paradise, as it was before.

We do not wish to keep this paradise for ourselves. We are going to create conditions forinternational ecological tourism, opening up our beaches to the people of the whole world, andsharing the beauty with everybody wishing to come. At the same time our ambition is to assurecitizens of normal, healthy and comfortable conditions of life.

It would be very difficult to achieve this objective without help of those who don't have ourdifficulties and who have more or less reached the objectives we have set ourselves. This isclearly the essence of a forum as is the conference of ministers in Luzern.

In the name of this altruistic assistance and cooperation, in the name of this region which wewould like to see united, peacefull, pure and stable, the government and the people of Bulgariaare proposing to hold the next conference of the ministers of the environment at Sofia. It willbe the occasion to evaluate the results of the decisions taken here at Luzern, to adjust them,where required, and to establish new objectives.

In the name of the government of Bulgaria I wish you successful and useful work at Luzernas well as at our next meeting in Sofia, at which you will be most welcome.

Ministerial Conicrcncc. Lu/crn. 2Klh - 30th April. 1993 75

I transmit to you this letter, it is in Bulgarian, with French translation.

Now I simply wanted to say a few words on my own and 1 say it in English so more of myEnglish friends will be able to understand it directly.

You have heard many speeches and many statements about the different aspects of theprocess "Environment for Europe", about the issues of the European Action Programme forCentral and Eastern Europe, about the Ministerial Declaration and all the relevant documents.

I will spare you the historical review how these documents were born. But I cannot sparethe deep gratitude, all of us have to our Swiss colleagues who made possible this conferenceand made termendous efforts to surmount the difficulties in the long and heavy preparatoryprocess.

In a concise manner, I would like to assess the Action Programme for Central and EasternEurope as a very useful document, which crosses out the limits of theoretical conceptions andinvisages right now consolidated actions. We fully support its approaches, the differentpriorities and as our German colleague said once upon a time, the Action Programme is abouquet and everyone will have the possibility to pick up his relevant flower.

We very strongly support the issues on the biodiversity conservation. Europe is a regionwhere the anthropogenic pressure has much affected nature. In Eastern European countries,there are still untouched habitats and in the name of savegarding the genuine European nature,all countries have to make real efforts.

The structures that will be established following the decisions of the Ministerial Declarationhave to be very flexible with very loose frameworks, in order to be able to react to the quickchanges in the economic and political situation. These structures have to be open to allcountries and institutions which are involved in the process, have to be free to insure by themost appropriate manner the marriage between economy and environment.

Being the next host country, as it was decided tn the Ministerial Declaration, Bulgaria willcontinue the real process which begins here in Luzern. The main achievements of this processis the establishment of a dialogue between the governments of the Western and Easterncountries with their policy makers and experts, the international organisations and the financialinstitutions. And this process has to continue in order to achieve some results in policyreforms, institutional strengthening and financing investments in Central and Eastern Europeancountries.

Accepting this big challenge, Bulgaria will make a substantial effort to improve this processintroducing the priorities which can cover the interests of all the Central and Eastern Europeancountries. And we hope that in this effort, Bulgaria will not be left alone. We rely on the helpof the donor countries and the support of the international and the financial institutions, we relyon our Swiss colleagues to share their experience in organizing this representative forum andwe hope to take from them the torch, to hold it firmly, and to give it to the next host countryfor a better quality of life for our population, for a preserved nature and for the safety of ourcommon environment.

Ministerial Conference. Lu/.ern. 28th - 30th April. 1993 76

PART III

Press Release

Documents

Participants

Press Release

Lucerne, 30 April 1993

14.00 h

The Ministerial Conference "Environment for Europe" ended today in Luzern. Ithad been presided by Swiss Eederal Councillor Ruth Dreifuss, Head of the Departmentof the Interior. Environment Ministers from 50 countries and the member of the ECCommission responsible for the environment adopted a 29 paragraph declaration settingout the political dimensions of the process "Environment for Europe" and the mostimportant conclusions. The Conference which focussed on the closer pan-Europeancooperation in the field of the environment saw also the participation of members ofparliaments and delegations of international organisations, financial institutions andenvironmental conventions, as well as non-governmental sectors such as environmentaland business organisations, trade unions, churches and science. The following pressrelease was published by the Conference President:

hi Europe we are today witnessing a time of historical transition. A transition born offundamental human needs - among them the protection of our environment and of our naturalresources. It is a need that has become a question of survival. And as such it is necessary todraw all creative forces together. Forces which will also make it possible to build the newEurope and create a new equilibrium which is not based on the balance of powers but on theconvergence of interests and on the common striving for a life in harmony with nature.

Against this background the ministers and the member of the EC-Commission clearlyaffirmed their determination to intensify their cooperation in the field of environmentalprotection in Europe, to assume their responsibility on the global level and to offer theirpartnership to the other regions of the world. They underline that the pursuit of this goal canonly bear fruit in an atmosphere of peace and political stability. They are convinced that closerpolitical cooperation in the field of the environment can do much for the construction and theintegration of the new Europe.

In order to reach these goals the Ministers and the Member of the EC Commission arrivedat decisions in the following sectors:

- Adoption of the Environmental Action Programme for Central and Eastern Europe(EAP) and of a number of instruments for its implementation. With the EAP ourcontinent disposes of a forward-looking and standard setting work document. It assuresthat economic and ecological development go hand in hand in the restauration of theserious and healthdamaging environmental situation in some parts of central and easternEurope.

- Intensification of cooperation in connection with the protection of biodiversity. The mainfocus will be on conservation of nature in Central and Eastern Europe which is still inmany areas largely intact and is characterized by a rich biological diversity.

Ministerial Conference. Luzern. 2S - 30th April. 1993 77

Continuation of work on the Report on the State of the Environment in Europe which isto be made available to governments by the Commission of the European Communitiesat the end of 1993 and which will provide the necessary data for further developing acomprehensive environmental programme for Europe as a whole.

Rapid coordinated introduction of market-based instruments (CO2/energy taxes);intensification of work on innovative measures for the financing of the EnvironmentalAction Programme. Promotion of monitoring to ensure a more efficient implementationof environmental policy decisions. This will ensure that all the initial major elementsrequired for an effective and efficient Environmental Programme for Europe are in place.

Acceptance of the invitation extended by Bulgaria to hold the next MinisterialConference "Environment for Europe" in this country in 1995. This assures thecontinuation of the process, which was started in Dobris in 1991 with the aim of creatinga Europe characterized by harmonious development of the economy and theenvironment.

Ministerial Conference. Lu/.em. 2S - 30th April, 1993 78

List of Conference Documents

A) Documents Formally Submitted to the Ministerial Conference

1 ) Environ mental Action Programme for Central and Eastern Europe. Document

submitted to the Ministerial Conference, Lucerne, Switzerland, 28-30 April, 1993.

Document dated 29 March 1993.

Original: English. Russian version arranged for by the Executive Secretariat. French,

Polish and Bulgarian translations arranged for by interested countries.

Reference: Ministerial Declaration, paras 4, 6 - 11 and 14.

2) Environmental Action Programme for Central and Eastern Europe. Executive

Summary.

Original: English. Russian version arranged for by the Executive Secretariat. French

version arranged for by interested countries.

Reference: Ministerial Declaration, paras 4, 6 - 11 and 14.

3) Environmental Assistance to Central and Eastern Europe. Joint report by the

Commission of the European Communities and the OECD.

English only.

Reference: Ministerial Declaration para 10.2.

4) Council of Europe, Strasbourg, Steering Committee for the Conservation and

Management of the Environment and Natural Habitats (CDPE): Nature Conservation

in Europe. An Overall Strategy on a Continental Scale: Some Important Aspects.

(PE-CP 5) Final and Addendum.

English, French and Russian.

Reference: Ministerial Declaration paras 12 and 13.

5) Progress Report on the Preparation of Europe's Environment.

English.

Reference: Ministerial Declaration para 15

fi) UN/ECE, Geneva: Contribution to the Ministerial Conference "Environment for

Europe", Lucerne, Switzerland, 28-30 April 1993, as adopted by the Senior

Advisers to ECE Governments on Environmental and Water Problems on 19

March 1993 (ECE/ENVWA/30) amended with a supplement to include para 4 of

document ECE/ENVWA/30/Add.l.

English, Russian and French.

Reference: Ministerial Declaration paras 16-18 and 22

Ministerial ConleruiLC Lu/,crn. 2X - 30lh April, 1993 79

7) International Legal Instruments. 2nd April 1993.

English.

Reference: Ministerial Declaration para 23

B) Informal Background Documents Available from the PreparatoryProcess

1 ) EAP Project Lists

1.1) Low-Cost Environmental Investments. Indicative (incomplete) listing of possible

actions described in chapter V of the Environmental Action Programme for Central and

Eastern Europe. English.

1.2) Preliminary Portfolio of Projects for the Environmental Action Programme for

Central and Eastern Europe. April 1993. Commission of the European Communities.

Plus Addendum Submitted by Croatia and Slovenia. English.

2) Assessment Work

2.1) Conclusions regarding the enhancement of G-24 Environmental Assistance to

Central and Eastern Europe. English.

2.2. ) Assessment of (Ï-24 Assistance to the Countries of Central and Eastern Europe in

the Environment Sector. PA Consulting Group, Royston, Herts., UK. February 1993.

English.

2.3.) On the Flow of Bilateral Assistance of (ï-24 Countries to Hungary in the Field of

the Environment. Dr. A. Melzer, Syntropie Stiftung, Liestal, Switzerland. English.

2.4.) Independent Assessment of Environmental Assistance to Central and Eastern

Europe. G. Badrus, P. Czaikowski, E. Gergely, J. Ledvinova, K. Stanchev and D.

Fisher, East West Environment Ltd. April 1993. English.

3 ) OECD Workshop Reports

3.1 ) Workshop on Taxation and Environment in European Economies in Transition.

25th - 26th February 1993, OECD, Paris. Draft Rapporteur's Summary of the

Discussion. English.

Ministerial Conference. Lu/ern. 2S - 30th April. 1993 80

3.2) Environmental Policy and the Transition to a Market Economy. International

seminar, Minsk, 2nd - 3rd December, 1992. Seminar conclusions. English, French.

3.3) International Conference on Privatisation, Eoreign Direct Investment and

Environmental Liability in Central and Eastern Europe, Warsaw, Poland, 19-21

May 1992. Preliminary Report. English, French.

3.4) IEA/OECD Conference on Energy and Environment in European Economies in

Transition. Prague, June 17 - 19, 1992. Rapporteur's Report. English, French.

4) UN/ECE Background Papers

Preparations for the Ministerial Conference "Environment for Europe". Background

Papers on:

I ) Technology Cooperation for a Better Environment

2) Integrated Pollution Prevention and Control

3) Economic Instruments

4) Environmental Performance Reviews

5) Environmental Information

6) Public Participation

7) International Legal Instruments

C) Documents Introduced by Individual Delegations

1. ) Discussion Papers

1.1) Swiss Discussion Paper on Item 3.2 of the Agenda "Innovative Instruments of

Environmental Policy". Economic Instruments in Air Pollution and Energy Policy.

English. (See Conference Report, Vol. II)

1.2) Swiss Discussion Paper on Item 3.3 of the Agenda "Monitoring, Compliance,

Enforcement in Environmental Policy". International Legal Instruments. English.

(See Conference Report, Vol. II)

1.3) Discussion Paper by Italy: Carbon-Energy Tax and Technological Cooperation.

English. (See Conference Report; Vol. II)

2) Key Note and Main Speeches (See Conference Report, Vol. I)

3) Statements by Delegations (See Conference Report, Vol. II)

Ministerial Conference. Luzem. 2H-M)th April, 1993 SI

State

Albania

Armenia

Australia

Austria

Belarus

Belgium

Bosnia and Herzegovina

Bulgaria s

Canada

Croatia

Cyprus

Czechia

Denmark

Name

Sello LirimThemeli JorgjiKostallari LorenaOade DritaBoçari GeZimGazmend Turdiu

Danieljan KarinAbowjan JuriZambaga Sodnomyn

Buckingham DavidHowarth Peler

Rauch-Kallat MariaSchreiber HeinzHaider HugoSchally HugoKienzl KarlBöckle RalfMe« HeimoBruckbauer StefanKaspar Martin

Dorofeev AnatolyKornievitch NilolaiTarasevitch GueorgiRatchevsky AlexanderIvanov Oleg

Reyn AlexClaeys MireillePendeville B.

Loutsch Michèle

Gentile Justine

Natov BranimirBabamov NicolaIvanova OreolaBozhanov SimeonMindjov KlimentPopov Evgueni

Campeau ArthurFerguson CraigRuddock FrankAndrzejewski PyotrOchman StefanCastillo Eduardo

Simoncic ViktorZuzul MiomirGranic Goran

Reiner ZeljkoRaie NikoBicanic VladoTamhina KatarinaHalle IvanaMastrovic MargitaLay VladimirSubasic DamirUdovicic Sozo

Petrides CostasGeorgiades Nicos

Benda FrantlsekMusil Jose)Venera ZdenekTrojan IvcDlouha JanaJanova DagmarMatyas Radomir

Auken SvendHansen Nils OleSeverinsen HanneGlerup MartinMortensen PiaMagner JörgenCarstensen JohnBecker ThomasSkov KarstenDybbro Tommy

Function

Chairman ol the Committee ot Environmental Preservation and ProtectionDirector ot the Department ol Economic Development, Ministry ol Finance and EconomySection Chiel ol ESU,Ministry ol Finance and EconomyAdviser, Ministry ol Health and Environmental ProtectionMinistry of Health and Environmental ProtectionAmbassador ol Albania to Switzerland

Minister of EnvironmentAdviserInterpreter

Executive Director, Commonwealth Environment Protection AgencyFirst Secretary, U.N. Australian Mission Geneva

Federal Minister of Environment, Youth and Family AffairsDirector General.Federal Ministry ot Environment, Youth and Family AffairsDirector, Federal Ministry of Environment, Youth and Family AffairsPermanent Mission of Austria to the U.N. GenevaFederal Environment Agency, AustriaFederal Ministry of Environment. Youth and Family AffairsRepresentative ot the Federal ProvincesAdviserRepresentative of NGO's

Head of the State Committee of EcologyDeputy Head of the State Committee of Economy and PlanningDeputy Minister of FinanceHead of the Department of Science and Foreign Relations of the State Committee of EcologySecond Secretary of the Chernobyl International Cooperation Department.Ministry of Foreign AffairsAmbassadeur, Représentant permanent de la Belgique auprès de l'ONUDirecteur d'administration au Ministère des Affaires EtrangèresConseiller au cabinet du Ministre de la Santé publique, de l'Environnement et de l'IntégrationsocialeSecrétaire d'administration. Ministère de la Santé publique et de l'Environnement, celluleenvironnementAttaché, Représentation permanente de la Belgique auprès de l'ONU

Vice-Minister of EnvironmentVice-Minister of FinanceChief Expert. Ministry ol EnvironmentEnvironmental Adviser of the PresidentBorrowed Nature AssociationBulgarian Chamber of Commerce

Ambassador for the Environment and Sustainable Development, Department of External AffairsDirector, Multilateral Alfairs, International Affairs Directorate, Department of the Environment,Counsellor, Canadian Permanent Mission to United Nations, AdviserCounsellor, Canadian Embassy Bern, AdviserCaucus/Consultation, Coordinator, Canadian Environmental NetworkConseiller aux Affaires Européennes Communautaires,Délégation Générale du QuébecVice Minister, Ministry of Civil Engineering and Environmental ProtectionAmbassador, Permanent Repr. to the U.N. Geneva. Ministry of Foreign AltairsPresident of the Commission for the Physical Planning and Environmental Protection of theParliamentDeputy Minister, Ministry of HealthSenior Adviser. Ministry of FinanceSenior Adviser, Ministry of Agriculture and ForestrySenior Adviser, Ministry of Foreign AffairsSenior Adviser, Ministry of Industry, Shipbuilding and EnergySenior Adviser, Ministry of Civil Engineering and Environmental ProtectionGreen Action ZagrebCroatian Chamber of CommerceCroatian Chamber of Commerce

Minister of Agriculture and Natural ResourcesDirector Environment Service

Minister ol the EnvironmentDeputy Minister ol the EnvironmentHead ot Permanent Mission GenevaDirector. Ministry of the EnvironmentNGO Representative, Green CircleUnion ot Nature ProtectionPresident. Czech Environment Management Centre

Minister for the EnvironmentCommissionerM.P.M.P.Committee Secretary to the MP'SHead of divisionAdviserHead ol sectionHead ol sectionNGO

Ministerial Conlcrcnee. Lu/crn, 2X - 30th April. 1993 82

Estonia

Finland

France

Georgia

Germany

Greece

Holy See

Hungary

Iceland

Ireland

Israel

Italy

Tarand AndresGromov AllanKratovits AndresTammoja PeeterKaasik Tonis

Pietikainen SirpaOjala OlliNumminen AskoKohonen TapaniHauniaSirkkaPylkkänen MinnaMeloni EskoSevola Pedti

Barnier MichelQuincy BêrengèreDuclos PhilippeMousel Michel,Yatchinovsky AndréCombrouze FrancisSletanini LaurentDelacroix PhilippeMoullade PierreKuhn GerardCharrier BertrandLastaunias Patrick.

Adamia ChotaSharabidze Merab

Töpfer Klaus, Prof, Dr.Vaatz Arnoldvon Websky MichaelLietzmann KurtWalter Alfred MariaLocker PetraEmde Franz AugustRadermacher AstridWulffen Bernd, Dr.Hochstatter ChristineWenderoth JürgenMömkes Klemens

Kammerschen Bernd-DietmarEngelhardt Wolfgang, Prof. Dr.Dittmann Bernd

Karamanlis AchilleasKarakatsoulisPanayotisStaikou SophiaSimantonis loannisDimitropoulos ChristosVassilopoulos MiltiadisPsarros Hélène

Me|ia Jorge

Gyurko JanosTokes Istvan,Pomazi istvanRadai OdonSandor MozesPoos MiklosKoloszar MiklosViszkei GyorgyZelkû Klâra

Gudnason EldurOttosson Jon Gunnar

Smith MichaelO Donoghue BrendanMcGuinness AnnBehan NoeleenTisdall Brian

Avidor Arie

Cassini GiuseppeTarelli AntonioMarri-Caciotti FerruccioIllomei SaturninoDi Benedetto GiuseppePelliccia PatriziaSestini RobertoLebotle MaurilioSilvi CesareSilvestrini Gianni

Minister of the EnvironmentCounsellor, Ministry of the EnvironmentHead ot International Relations Bureau, Ministry of the EnvironmentPresident of ECCJAdviser

Minister ol the EnvironmentDirector general. Ministry of the EnvironmentDirector, Ministry for Foreign AffairsCounsellor for International Affairs, Ministry of the EnvironmentChief ot International Relations, Nat, Board ot Waters and the Env.Officer for International Affairs, Ministry of the EnvironmentDirector, Environmental Affairs, Kymmene Corporation. AdviserFinnish Association for Nature Conservation, Adviser

Ministrede l'EnvironnementChef du Service des Affaires Internationales/DBAEI, Ministère de l'EnvironnementConseiller technique au Cabinet du Ministre, Ministère de l'EnvironnementPrés, de l'ADEME (Agence de l'Env. et de la Maîtrise de l'Energie)Service des Affaires Internationales/DRAEI, Ministère de lEnvironnementDirection de la Prévention des Pollutions et des Risques, Ministère de I EnvironnementDirection des Affaires Economiques et Financières, Ministère de l'Env.Premier secrétaire. Mission permanente de la France auprès de l'ONU, GenèveDirection du Trésor, Ministère de l'EconomieAttaché pour la Science et la Technologie, Ambassade de France a BerneEquipe CousteauOfficier de sécurité

Minister of EnvironmentEconomist, Ministry ol Env. Protection

Bundesminister für Umwelt, Naturschutz und ReaktorsicherheitMinister für Umwelt und Landesentwicklung des Landes SachsenUnterabteilungsleiter im Bundesministerium für Umwelt, Naturschutz und ReaktorsicherheitReferatsleiter im Bundesministerium für Umwelt, Naturschutz und ReaktorsicherheitReferatsleiter im Bundesministerium für Umwelt, Naturschutz und ReaktorsicherheitPersönliche Referentin des Bundesministers für Umwelt, Naturschutz und ReaktorsicherheitMitarbeiter im Bundesministerium für Umwelt, Naturschutz und ReaktorsicherheitReterentin im Bundesministerium für Umwelt, Naturschutz und ReaktorsicherheitReferatsleiter im Auswärtigen AmtReferentin im Bundesministerium für WirtschaftSachbearbeiter im Bundesministerium für FinanzenLegationsrat, Ständige Vertretung der Bundesrepublik Deutschland bei dem Büro derVereinten Nationen in GenfReferent im sächsischen Staatsministerium für Umwelt und LandesentwicklungDeutscher NaturschutzringBundesverband der Deutschen Industrie e.V.

Ministre de l'Environnement, de l'Aménagement du Territoire et des Travaux PublicsProfesseurConseiller du MinistreConseiller du MinistreExpert-Conseiller, Ministère des Affaires EtrangèresConseiller d'Ambassade, Délégation permanente auprès de la Communauté EuropéenneChef de Département, Ministère de l'Economie Nationale

Bishop

Minister for Environment and Regional PolicyDirector, Dept for International Cooperation, Ministry for Environment and Regional PolicyHead of Division, Dept for Environmental Policy, Ministry for Environment and Regional PolicyCounsellor, Nat. Agency for Nature Conservation, Ministry for Environment and Regional PolicyCounsellor. Ministry of Foreign AffairsDirector General, Department of Environmental Management, Ministry ol Industry and TradeCounsellor, Ministry of FinanceGeneral Director. Hungarian Chamber of CommerceDeputy Director General, Ministry for International Economic Relations

Minister for the EnvironmentDirector of Environmental Affairs, Ministry for the Environment

Minister for the EnvironmentSecretary-General. Department ot the EnvironmentAssistant Principal Officer, Department of the EnvironmentPrivate Secretary to the MinisterSecretary, Embassy of Ireland, Berne

Counsellor, Embassy of Israel. Berne

Ministre Plénipotentiaire, Conseiller diplomatique, Ministère de I EnvironnementMinistre plénipotentiaire, Ministère des Affaires EtrangèresConseiller d'ambassade, Chef du Secrétariat Environnement, Ministère des Affaires EtrangèresBureau de presse, Ministère de l'EnvironnementConseiller, Ministère du TrésorInstltuto Nazionale per II Commercio EsteraPrésident, Commission confédérale pour I Environnement, ConfindustriaConfindustriaENEACNR Palermo

Ministerial Conference. Lu/crn, 28 - 3()th April. 1993 83

Japan

Kazakhstan

Latvia

Liechtenstein

Lithuania

Luxembourg

"Ex-Jugoslav Republic ofMacedonia"

Malta

Moldova

Monaco

Netherlands

Norway

Hayashi laikan

Hitomi MoriSatiuro KatoYasuhiio ShimizuKohnosuke t-uruyamaTatuslii TeradaMasanobu Miyagawa

Medvedev Svyaioslav A.Menzhulin BorisSharnenov AtamuraiBektybaev Kabdualy

Emsis IndulisBalaievskis OlegsVilnius ValtsKriKis AndrisUlme ArvidsPreimate llga

Liela ElitaSilenieks HenriksMihelsons UldisSaulitis Raimonds

Wille HerbertNaescher FelixKindle Theo

Vêbra hvaldasBajoras ArvydasLiuzinas RapolasSarkinas ReinüldijusPrielaida NarcizasPilypiene IrenaMotulas AlgirdasInesis KiskisCepinskis JonasMisKinis Vytautas

Bodry AlexZimmer CharlesLucas SylvieReisdorter Romain

Selmani AsianSrbinovski Nikola

Todorovski Sasko

Zammit StanleyMicallet LawrencePullicino Simon

Dediu IonGusac PavelOleinik NicolaiRenitse Alekou

Badia JoseVan Klaveren Patrick

Alders Hans G.M.Kakebeeke Willemvan Schouwenburg HubertVan Aalst RoelSmits SimonWolters RobBrieskom RalphKlom AndrewVan Ginkel CeesVan Giezen MarjanHenselmans Jan

• Verhei|e Marga

Graham OddmundThompson JanFort RichardHofseth PaulBratteli ToneB|orklund CarolaTandberg EivindEnge ElinAndenaes Haege

Minister of State, Director General ol Environment Agency, Minister in charge of GlobalEnvironment ProblemsDeputy Vice Minister, Environment AgencyDirector General, Global Environment Department, Environment AgencyDeputy Director of the Planning Division, Global Environment Department, Environment AgencySecretary for the Minister, Environment AgencySecretary for the Minister, Environment AgencySecurity Officer

Minister of Ecology and BioresourcesDeputy Minister of FinanceManager of fhe Ecological Department of President MachineryChief of the Ecological Department, Ministry of Economy

Chairman of the Environmental Protection CommitteeChairman, Commission for the Env, Protection of the Supreme CouncilVice-chairman. Environmental Protection CommitteeHead of Environment Protection Coordination Department, Environmental Protection CommitteePresident. Environmental Protection ClubChief, Department of Analyses and Forecast of National Economy, Ministry ofEconomic ReformsDeputy Director, Department of National Economy, Ministry of FinanceDeputy Managing Director, Latvian Chamber of Commercedriverdriver

Regierungschef-StellvertreterLeiter des LandesforstamtesLeiter des Amtes für Gewässerschutz

Director General, Environmental Protection DepartmentChairman, Nature Protection Committee of Lithuanian ParliamentDeputy Director, Environmental Protection DepartmentDeputy Minister of FinancesRepresentative of Lithuanian Government to U.N. and international organizations in SwitzerlandAdvisor to Government on Environmental IssuesDirector of Department. Ministry ol EconomyHead of Foreign Relations Division, Environmental Protection DepartmentProfessor, University of Vytautas MagnusRepresentative of Lithuanian Chamber of Commerce

Ministre de I EnvironnementConseiller de direction 1ère classe, Ministèrede l'EnvironnementSecrétaire de légation, Ministère des Affaires Etrangères

Minister of ScienceAssistant-Minister, Head of the Environmental Division, Ministry of Urbanism, Construction,Transportation and EcologySpecial Counselor, Head of the Department for the Council of Europe, Ministry ofForeign RelationsParliamentary Secretary in the Ministry for fhe EnvironmentHead. Pollution Control Coordinating Unit, Ministry of the EnvironmentThird Secretary, U.N. Permanent Mission of Malta in Geneva

Minister. State Department far Environmental Protection and Natural ResourcesChairman. Parliamentary Ecological CommissionVice Prime Minister, Government of the Republic of MoldovaMember of Parliament, President Ecological Movement

Directeur général du Département des Travaux publics et des Affaires socialesChef du Service de l'Environnement

Minister of Housing, Physical Planning and EnvironmentMinistry of Housing, Physical Planning and EnvironmentMinistry of Housing, Physical Planning and EnvironmentNational Institute for Public Health and EnvironmentPermanent Representation of The Netherlands in Geneva, Ministry of Foreign AffairsMinistry of Agriculture, Nature Management and FisheriesMinistry of Housing, Physical Planning and EnvironmentMinistry of Foreign AffairsMinistry of Housing, Physical Planning and EnvironmentMinistry of Housing, Physical Planning and EnvironmentFoundation "Nature and Environment"Foundation "Milieukontakt Oost-Europa"

Secretary General, Ministry of EnvironmentDirector General, Ministry of EnvironmentSpecial Adviser, Ministry of EnvironmentSpecial Adviser, Ministry of EnvironmentAdviser, Ministry of EnvironmentSenior Executive Officer, Ministry of Foreign AffairsAss. Director General. Ministry of FinanceExecutive Director,The Norwegian Forum tor Environment and DevelopmentAdviser, Ministry of Environment

Ministerial Conference, Lu/ern. 2S - 30th April. 1993

Poland

Portugal

/ Romania

Russian Federation

San Marino

/ Slovakia

Slovenia

Spain

Grzywacz Andrzej

Rybicki MarcinNowicki MaciejMadej JerzyGawlik RadoslawCzyz AndrzeiWysoczanski PlatonZurek JanuszKedzierski JerzyJuchnowicz StanislawWolfram KrzysztofPaschalis-Jakubowicz PiotrKrol RyszardBanaszak Leszek

Borrego CarlosMadureira AntonioLemos Quilharma da SilvaPauloSoromenho Marques JosePires Ascenso ArturRoda RuiLorvao LuisAlonso Fernandas Maria doCarmo

Hie Aurel ConstantinJelev loan

Ceuca Lucia

Alexandrescu ValentinPreda AurelGeorgescu AlexandruCucu ManoleRauta ComeliuIbanescu GabrielaAlexandru Zamlir

Badros GheorgheOvidiu Oancea

Danilov-Danilian ViktorAvertchenkov AlexandreVorfolomeev VladimirSemekhin IvanKuchin GermanPiskulov YuryParlenov VitalyKokeev MikhailShopkhoev EvgenyBurdakov NikolaiKazakov YuryGoudyma AlexandreKolokolchikova NadezhdaYagodin GennadyShubin ValéryKasumyan ElenaKruglova Svetlana

Menicucci Claudio

Zlocha JozelZimanova LubomiraKlimo LubomirChuda ZuzanaHrasko JurajBukovinska GabrielaSmolen JanSkullêty JozefDzurjaninova DarinaKrai AbelLizak PeterZimmer Norber

Jazbinsek MihaStritih JernejFerjancic EmilGantar AntonJerina Andre|aPodpecan DaniStraus MilanVuga TomazMarson Anna

Jimenez-Beltrén DomingoRos-Vicent Joaquin

Professor, Undersecretary ol State in the Ministry of Environmental Protection, NaturalResources and ForestryUndersecretary of State in the Central Office of PlanningProfessor, Adviser to the Prime Minister. President of the EkoFund FoundationSenator, Chairman of the Senate s Committee on EnvironmentDeputy Chairman, Sejm Committee on Environmental Protection, Nat. Resources and ForestryDirector, Ministry of Environmental Protection, Natural Resources and ForestryDeputy Director, Ministry of FinanceInstitute of Environmental ProtectionVicepresident, National Fund for Environmental Protection and Water ManagementProfessor, Polish Ecological ClubNational Foundation ol Environmental ProtectionAdviser to the Delegation's ChairmanMinister-Counsellor, Polish Embassy, BernDeputy Director, Ministry ot Environmental Protection, Natural Resources and Forestry

Minister of Environment and Natural ResourcesChief of cabinet, Ministry of Environment and Natural ResourcesMinistry of Environment and Natural Resources

Chairman of Quercus (NGO)Director General, Environment QualityDirector General, Natural RessourcesHead ot Division, Ministry of Foreign AffairsExpert, Ministry of Environment and Natural Resources, Observer

Minister of Water, Forestry and Environmental ProtectionSecretary ot Slate. Chief of the Environmental Protection Department, Ministry of Water,Forestry and Environmental ProtectionDirector, International and Public Relations Directorate, Press Officer, Ministry of Water,Forestry and Environmental ProtectionHead of the Projects Implementation Unit. Ministry of Water, Forestry and Env. ProtectionDirector, Ministry of Foreign AffairsDeputy Director, Ministry of IndustryDirector, Institute ol Hygiene and Public Health, Ministry ot HealthDirector, Institute of Pedology and Agrochemistry. Ministry ol AgricultureExpert, Ministry of FinanceMember ot Managing Board, Chamber ot Commerce and Industry, President of theMarketing Association (AROMAR)Representative ot Romanian NGOExecutive Director, The Ecologist Youth of Romania

Minister of Environmental Protection and Natural ResourcesDeputy Minister. Ministry of Environmental Protection and Natural ResourcesChiarrrian ol Committee, Supreme Soviet ol the Russian FederationDirector, Federal Ecological Fundation of RussiaGeneral Director. ECOMALChairman of Committee, The Russian Federation Chamber ol Commerce and IndustryDirector of Department, Government AdministrationDeputy Director of Department, Ministry of Foreign AffairsDirector of Department, Ministry ot EconomyVice-Chairman, Emergency Committe of RussiaDirector, International Department Ministry of Environmental Protection and Natural ResourcesDeputy Director, International Department Ministry ol Env. Protection and Natural ResourcesChiel Expert, International Department Ministry of Env. Protection and Natural ResourcesInternational UniversityChief. Federal Forest ServiceDirector of Department, Ministry ot Environmental Protection and Natural ResourcesPress Officer

Ingenieur

Minister of EnvironmentState Secretary. Ministry of EnvironmentMinistry of FinanceMinistry of Foreign AffairsMember of ParliamentOffice of PresidiumMinistry of EnvironmentMinistry of EnvironmentMinistry of EnvironmentAmbassador of the Slovak Republic. BernFirst Secretary, Slovak Embassy, BernCounsellor, Slovak Embassy, Bern

Minister of EnvironmentState Secretary. Ministry of EnvironmentAdviser to the Minister, Ministry of EnvironmentHead, IUV, R & D. DepartmentSenior Adviser, Chamber ot Economyvice President, Cinkarna, ManagementNGOEnvironmental ConsultantEnvironmental Consultant

Director general of Environmental Policy, Ministry ot Public Works and TransportDeputy Director Normative and Institutional Relations, Ministry ol Public Works and Transport

Ministerial Conference. Lu/.crn, 28 - 3()lh April, 1993

Sweden

Switzerland

Turkey

Ukraine

United Kingdom

United States

Johansson OlolSvidèn UKBjörkbom LarsWeigelt UllaBodên LennartBohéman AndersBonn VivekaEmsgard HakanKahn JonLandborn Gunnar

Dreiluss RuthBlankan FranzKeiienberger JakobRoch PhilippeArioli SilvioHoffmann HansrudolfPopp HansSpinner BrunoMartin EricPernn BernardSchmid WilhelmE seh er HermannMohr ArthurGuentzel OliverSchwager StefanJaggy Bernard

Jeanprètre FrancineFässler Ulrich. Dr.Baumann PaulGlovannini BernardBürgi DieterJuen ChristophMelzer Alexander

Akyürek B. DogancanArat ZeynepBoztas SüheylaKaradag Esra F.

Kostenko YuriyPyatachenko GrygoriySumin VolodymyrKorobko MykolaSlipchenko AlexanderTarabukhin AlexanderDemydenko Andriy

Rt Hon Michael HowardMaclean DavidOsborn DerekWatson GavinMcKinley SheilaGranatt MichaelMcGione Alistair JohnTillson JonathanGodson AnthonyPersey JanetHowarth AndrewIsaacs AdamLe Fort HilaryBurke TomAlexander BrianChampain Phil

Browner Carpi MUcelli Loretta

Russell Theodore E.

Schifferdecker Arnold

Beardsley Daniel

Greenberg Ronald

Mulrean PeterBaker JamieMuehling Brian K.

Rainey AllisonWeiss JohnLewison EileenBuzzeiii David

Bowman Margaret

Minister of EnvironmentAssistant Under Secretary. Ministry of EnvironmentAmbassador, Swedish Environmental Protection AgencyDeputy Assistant Under Secretary. Ministry of EnvironmentPolitical Adviser, Ministry of EnvironmentHead of section. Ministry of EnvironmentCounsellor, Ministry of Foreign AffairsHead of section. Ministry of FinancePolitical Adviser. Ministry of EnvironmentSecretary General, Swedish Society for Nature Conservation

Federal Councillor. Head of the Department of the InteriorState Secretary, Federal Department of Public Economy (Commerce)State Secretary, Federal Department of Foreign AffairsDirector, Federal Department of the Interior (Environment)Ambassador. Federal Department of Public Economy (Commerce)Ambassador, Federal Department of Foreign AffairsFederal Department of Public Economy (Agriculture)

Ambassador, Integration OfficeFederal Department of Foreign AffairsFederal Department of Communication and EnergyFederal Department of the Interior (Environment)Federal Department of Public Economy (Commerce)Federal Department of the Interior (Environment)Federal Department of the Interior (Public Health)Federal Department of the Interior (Environment)Federal Department of Public Economy (Commerce)

National CouncillorState Councillor. LuzemCity Councillor, LuzernDirector, International Academy of the EnvironmentSwiss Society for Environment ProtectionSwiss Federation of Commerce and IndustryAdviser

Minister of EnvironmentDeputy Undersecretary. Ministry of EnvironmentFirst Legal Adviser, Ministry of EnvironmentExpert, Ministry of Environment

Minister for Environmental ProtectionMinister of FinancesPresident, Ukrainian National Assembly of BusinessmenChairman, Ukrainian Environmental Association Green WorldAmbassador, Permanent Representative of Ukraine in GenevaHead of External Finances Department, Currency-Economic Department, Ministry of FinancesDirector, Division of International Relations. Ministry tor Environmental Protection

QC MP. Secretary of State for the EnvironmentMP, Minister of State for the Environment and CountrysideCB. Director General Environmental Protection, Department of the EnvironmentDirector Environmental Policy and Analysis, Department of the EnvironmentEnvironment Protection Europe Division, Department of the EnvironmentDirector of Information, Department of the EnvironmentLegal Adviser, Department of the EnvironmentAssistant Private Secretary to Secretary of StateFrist Secretary, UK Mission to the UN GenevaEastern European Division in the Overseas Development AdministrationAssistant Private Secretary to Minister of StateEnvironmental Protection Europe Division, Department of the EnvironmentInformation Directorate, Department of the EnvironmentSpecial Adviser to Secretary of StateBoard Member of North West Water International Ltd.Teacher Education Officer WWF UK

Administrator Environmental Protection AgencyAssociate Administrator tor Communication, Education and Public Affairs,Environmental Protection AgencyDeputy Assistant Administrator tor International Activities, EnvironmentalProtection AgencyDirector, Office of Environmental Protection. Bureau tor Oceans and InternationalEnvironmental and Scientific Affairs, Department of StateDirector of East European and Soviet Union Technical Assistance, Office of InternationalActivities, Environmental Protection AgencyChief of Environment and Natural Resources Division, Bureau for Europe, Agency forInternational DevelopmentSpecial Assistant. Office of East European Assistance, Department of StateAttorney Adviser, Office of Legal Adviser, Department of StateInternational Activities Specialist, Office of International Activities, EnvironmentalProtection AgencySpecial Assistant to the EPA Administrator, Environmental Protection AgencyFirst Secretary, U.S. Mission GenevaEconomic Officer, U.S. Embassy BernVice President for Environment, Health and Safety, The Dow Chemical Company,Adviser to the DelegationDirector. Central and Eastern European Program. Environmental Law Institute.Adviser to the Delegation

Ministeriell Conference. Luzern. 2X - 30th April. 1993 86

European Community : Council Presidency: see Danish delegation

Moys FrederickVazquez Molini Ignacio

Commission:

Paleokrassas YannisBrinkhorsl Laurens JanBourdeau PhilippeBourel de la foncière PhilippeBramwell AnnaDe Langer HermanOufour ChristianFennez AndreaKnook HillebrandKolsimatis GeorgeRohrsted Tue

Stanners David

Director, General Secretariat of the CouncilAdministrator, General Secretariat ol the Council

Commissioner, Member ol the Commission of the E,C.Director General for Environment, Nuclear Safety and Civil ProtectionHead of Task Force for the European Environment AgencyPrincipal Administrator, International Affairs, General Directorate for EnvironmentPrincipal Administrator, PHARE Operational Service, General Directorate for External RelationsHead of Unit, G-24 Coordination Unit, Directorate General tor External RelationsConseiller, EC Commission Delegation GenevaAdministrator. G-24 Coordination Unit, Directorate General for External RelationsCoordinator, Black Triangle Programme, Directorate General for EnvironmentMember of Mr. PaleoKrassas CabinetHead of Environmental Interventions in Central & Eastern Europeand NIS,Directorate General lor EnvironmentMember ol the Task Force of the European Environment Agency

Council of Europe

Economic Commission for Europe,Geneva

European Free Trade Association,Geneva

North Atlantic Treaty Organisation,Brussels

Organisation for EconomicCooperation and Development,Paris

International Energy Agency,Paris

European ParliamentCommittee on theEnvironment, Public Healthand Consumer Protection,Brussels:

Schleicher Ursula,Chanterie Raphaël

Coolegem S|ef

Secretariat:

Lalumiere CatherineAlbanese FerdinandoRibaut Jean-PierreHacourt HectorFernandez-Galiano EladioBonner UlrichCasgnolati-Staveris Antonella

Zimmer SabineWillkomm Christine

Parliamentary Assembly,Committee on theEnvironment, regionalPlanning and local Authorltle

Ruffy VictorBlunck LiselotteRobert LeniSeverinsen HanneCagnolati-Staveris Antonella

Hinteregger GeraldLopez-Polo ClémenteBärlund KajDe Bellis GerhardKokine Mikhail

Johansson Berndt OlofLugon Jérôme

Veiga da Cunha Luis, Dr.

Vinde Pierre,Long BillGomm JeanEppel JeremyGillespie BrendanBallivet Helene

Skinner Robert

MEP, Vice-Chairman of the CommuéeMEP, Member of the Committee and the Committee's Rapporteur for the Environmentin Central and Eastern EuropeSenior Administrator in the Secretariat of the Committee

Secrétaire GénéralDirecteur de l'Environnement et des pouvoirs locauxChef de la Division de la protection et de la gestion de l'EnvironnementAdministrateur principal. Division de la protection et de la gestion de l'EnvironnementSecrétaire de la Convention de BerneAdministrateur principal. Cabinet du Secrétaire GénéralSecrétaire de la Commission de l'Environnement, de l'aménagement du territoireet des pouvoirs locaux de l'Assemblée parlementaireAttachée de presseSecrétaire au Service de presse

Vice President of the Committee

Adviser

Executive Secretary UN/ECEDirectorChairman, ECE Senior Advisers on EnvironmentDeputy DirectorOiiicer-in-Charge Environment Section

Deputy Secretary GeneralDirector

Deputy Secretary-GeneralDirector of Environment

Director

United Nations EnvironmentProgramme, Nairobi

United Nations IndustrialDevelopment Organisation, Vienna

World Health Organisation,Copenhagen

United Nations DevelopmentProgramme, New York

Uppenbrink MartinBelmont FrançoiseJimenez Renjifo Carlos

Muegge HermanAssal George

Asvall Jo Erik, DirectorTarkowski StanislawKello Dinko

Wijnen Kees

Director Regional Office for EuropeDeputy DirectorInformation Assistant

Head Regional and County Studies BranchIndustrial Development Officer, Regional and Country Studies Branch

Regional Office for EuropeDirector, Environment and Health Department, Deputy Head ot delegationRegional Adviser

Regional Project Manager

Ministerial Conference, Luzern, 28 - 3(.)lh April, 1993

European Investment Bank,Luxembourg

European Bank for Reconstructionand Development, London

Deleau MichelGuy Clausse

Tanaka Josue,Makela TimoMuscat (JerryMurphy Timothy

Nordic Investment Bank, Helsinki Pitkanen Harro

International Bank forReconstruction and Development,Washington

Baltic Marine EnvironmentProtection Commission, Helsinki

Standing Committee of the BerneConvention on the Conservationof European Wildlife and NaturalHabitats, Strasbourg

Basel Convention on the Controlof Transboundary Movements ofHazardous Wastes and theirDisposal, Chambésy

Geneva Convention on Long-Range Transboundary AirPollution, Geneva

Ramsar Convention on Wetlandsof International Importanceespecially as Waterfowl Habitat,Gland

Washington Convention onInternational Trade in EndangeredSpecies of Wild Flora and Fauna,Lausanne

T'halwit? Wilfried P.Sood AnilSteer AndrewSeth Anand K.Ackermann RichardHughes GardonAyres Wendy

Ehlin UltMelvasalo I erttu

Fernandez-Galiano Eladio

Tarasti I auriRummel Bulska Iwona

Thompson JanLopez-Polo Clémente

Navid Daniel,Smart Michael

Berney Jaques

Head ol DepartmentDeputy Head ot division, Deputy Head of delegation

Deputy DirectorDeputy Head of delegationEnvironment SpecialistHead of Environmental Appraisal

Director / •

Vice President, Europe & Central AsiaDirector. Technical DepartmentDeputy Director, Environment DepartmentChief Environment DivisionSenior Policy Analyst, Environment DivisionSenior AdviserEconomist, Environment Division

Executive SecretaryProgramme Cordinator

Secretary of the Berne Convention

Vice-President of the Parties to the Basel ConventionCoordinator, Deputy Head of delegation

Chairman, Executive Body of the Geneva ConventionDirector Environment and Human Settlements Division UN/ECE

Secretary GeneralAssistant Secretary General. Deputy Head of delegation

Deputy Secretary General

Bonn Convention on theConservation of Migratory Speciesof Wild Animals UNEP/CMS, BonnVienna Convention for theProtection of the Ozone LayerUNEP, Nairobi

The World Conservation Union,Gland

Regional Environmental Center forCentral and Eastern Europe,Budapest

Environment / DevelopmentNGOs

Mueller-Helmbrecht Arnulf Co-ordinator

Holdgate Martin W.Katpowicz ZbigniewHopkins Liz,Burhenne Wolfgang

Moldan BedrichSitnicki Stanislaw

Herzog Zimmermann TheresaVavrousek JosefSilina MaraCzajkowski PrzemShibaeva InnaGergely ErzssbetRossi RossellaVan Ermen RaymondLarsen TerjeMeyer KonradHontelez JohnBoyle StewartFisher DuncanKrassen Stancher

Director GeneralProgramme Coordinator, Eastern European ProgrammeProgramme Officer. European AffairsLegal Adviser

Chairman of the Board of DirectorsExecutive Director

Coordination for Europe (Switzerland)Society tor Sustainable Living (Czechia)Greenway (Slovakia)Milieukontakt Oosteuropa (Poland)International Biosphere Institute (Russia)CEE-WËB (Hungary)Europe Conservation (Italy)Bureau Européen d Environnement (Belgium)ANPED (Norway)WWF International (Swilzerland)Friends of the Earth International (Danemark)Greenpeace Internaiional (United Kingdom)East-West (United Kindgom)Borrowed Nature (Bulgaria)

Ministerial Conference. Lu/.ern. 2X - 30th April, 1993

Business / Industry

Trade Unions

Science

Churches

Rouher Jean-CharlesBlum Wallerde Quervam BernhardScola IgnazioSehira JulesKennedy NorineRiedwyl PeterHaddad SamirTerrenoire Alain

. Nystedt-Ringborg CatharinaKohn MichaelJourdan LouisBlackburn NigelLaunois TinaLang TheodorSteinsberg AxelKraus JohnWillums Jan-OlafGresch PeterGerming Jean-MichelHolmes RobertAuchincloss StuartBrozicek George

Royer Lucien

Smith John H

Noll RüdigerJenny Reto DanielStückelberger Christoph

Secretary General of the International Chamber of CommerceDirector, Environmental affairs, Preussag AG (Germany)Environmental Engineer, Holderbank (Switzerland)Responsible, Environmental Affairs, FisiaS.p.A. (Italy)President, Sehira AG (Switzerland)Director. Environmental Affairs, U.S. Council for International Business (USA)President, International Environment Commission (Belgium)President. Oriental Agricultural Establishment (Lebanon)Director. Elf Aquitaine (France)Vice President, ABB Environmental Affairs (Sweden)President, Capital of Economy (Switzerland)Senior Director, European Council of Chemical Manufacturers Federation (Belgium)Director, International Chamber of Commerce (France)Assistant, International Chamber of Commerce (France)Assistant Vice-President, Holderbank (Switzerland)Magister, Austrian Federal Chamber of Commerce (Austria)ICC Permanent Representative to the U.N. in Geneva (Switzerland)Executive Director, World Industry Council for the Environment (France)Elektrowatt Ing. Services Ltd. (Switzerland)Area Manager, International Business Division, Elektrowatt Ing. Services Ltd. (Switzerland)Managing Director. Environmental Strategies Europe (U.K.)Adviser, Czech Environment Management Centre (Czechia)Foundation for Environmentally Friendly Development of Central and

Eastern Europe/FEFDOCE (Czechia)

International Confederation of Free Trade Unions, Brussels

European Science Foundation, Strasbourg

Conference of European ChurchesOekumenische Arbeitsgemeinschaft Kirche und Umwelt (OeKU) SwitzerlandOekumenische Arbeitsgemeinschaft Kirche und Umwelt (OeKU) Switzerland

Ministerial Conference. Lu/crn. 28 - 3()th April. 1993

Annex

30 avril 1993

Déclaration

des Ministres de l'environnement de la région de la Commission économique pourl'Europe de l'Organisation des Nations Unies (CEE / ONU) et du représentant de laCommission des Communautés européennes chargé des questions d'environnement

DIMENSION POLITIQUE DU PROCESSUS "UN ENVIRONNEMENT POURL'EUROPE"

1. Nous voulons intensifier notre coopération dans le domaine de la protection del'environnement en Europe, assumer nos responsabilités au niveau mondial et offrir notreassistance aux autres régions du monde. Nous veillerons à ce que les mesures prises dansun pays n'aient pas de répercussions négatives sur l'environnement d'autres pays. Nousnous efforcerons d'éviter en premier lieu les problèmes environnementaux qui portentatteinte à la santé de l'être humain.

2. Nous collaborerons plus étroitement aux niveaux régional, sub-régional et bilatéral pourpréserver notre patrimoine naturel et prévenir la dégradation de notre environnementcommun. Nous sommes résolus à préserver la diversité écologique et culturelle, à sauverles espèces menacées et à réhabiliter les zones et écosystèmes dégradés de notre région.

3. Notre coopération, qui est axée sur la convergence de la qualité de l'environnement etdes politiques menées en Europe dans ce domaine constitue également un puissantfacteur d'intégration et une pierre angulaire pour la construction de la nouvelle Europe.En poursuivant cette coopération, tout en nous efforçant de parvenir à la paix, à lastabilité et à un développement durable, nous agissons conformément aux décisions etaux recommandations de la Conférence sur la sécurité et la coopération en Europe(CSCE) et de la Conférence des Nations Unies sur l'environnement et le développement(CNUED); nous complétons et renforçons les efforts de coopération déployés au seindes instances internationales existantes et dans le cadre des conventions surl'environnement; et nous intégrons dans cette coopération tous les niveaux dugouvernement ainsi que les secteurs indépendants.

TRAVAUX PREPARATOIRES POUR LA CONFERENCE DE LUCERNE

4. Lors de la Conférence ministérielle intitulée "Un environnement pour l'Europe", qui s'esttenue à Dobris Castle en juin 1991 et qui s'inspirait des conférences de Bergen et deDublin de 1990, il a été demandé que soient élaborés un Programme d'action pourl'environnement en Europe centrale et orientale, un Rapport sur l'état del'environnement en Europe, qui doit être achevé avant Ja fin de 1993, ainsi qu'unProgramme écologique pour l'Europe à plus long terme.

5. Des travaux préparatoires ont été entrepris sur toutes ces questions dans le cadre d'unprocessus préparatoire complet et coordonné par des gouvernements, la Commission desCommunautés européennes, des organisations internationales, des institutions financièreset des secteurs indépendants. Nos conclusions concernant les points spécifiques sont lessuivantes :

PROGRAMME D'ACTION POUR L'ENVIRONNEMENT EN EUROPE CENTRALEKl ORIENTALE

6. Nous entérinons la stratégie de grande ampleur, ainsi que ses principes et prioritésgénérales, prévue par le Programme d'action pour l'environnement en Europecentrale et orientale (PAE) en tant que base pour l'action menée par les pouvoirspublics nationaux et locaux, par la Commission des Communautés européennes et parles organisations internationales, les institutions financières et les investisseurs privésdont les activités se déroulent dans cette région.

7. Le PAE reflète un consensus sur une approche large s'articulant autour de troisgrands axes:- intégration des préoccupations écologiques dans le processus de reconstructionéconomique visant à assurer un développement durable;- création de capacités institutionnelles, y compris un cadre juridique et administratifefficace et une capacité de gestion, de formation et d'éducation;- des programmes d'aide immédiate comprenant des actions destinées à apporter unsecours immédiat ou à court terme aux régions dans lesquelles la santé de l'être humainou les écosystèmes naturels sont gravement menacés par des risques mettant en périll'environnement. Ces programmes tiendront compte également des problèmesenvironnementaux transfrontières. Le PAE propose aussi des exemples de projetsd'investissements pour chaque domaine prioritaire.

X. La mutation de l'économie en Europe centrale et orientale devrait avoir une incidencepositive sur de nombreux aspects de la qualité de l'environnement. Cependant, il y auratoujours des zones où la pollution porte atteinte à la santé de l'être humain, où lesécosystèmes risquent de subir des changements irréversibles et où les coûts économiquesties dégâts causés à l'environnement sont très élevés. Le PAE indique comment cesproblèmes prioritaires peuvent être abordés avec un bon rapport coût-efficacité ens'inspirant de l'expérience des programmes passés et présents, et en proposant desmesures visant à renforcer ou réorienter les programmes en cours et à améliorer leurcoordination. Il insiste sur la nécessité d'une coopération internationale revêtant diversesformes, y compris des investissements et des sociétés conjointes, sur la nécessité defaciliter le transfert des technologies propres et de progresser vers l'application denormes internationales, sans oublier pour autant les problèmes économiques et financiersqui résultent de la transition vers une économie de marché.

9. Nous soutenons fermement la mise en oeuvre, dans un esprit de partenariat, de lastratégie générale prévue par le PAE.

9.1 Les gouvernements d'Europe centrale et orientale entreprendront des réformes politiqueset institutionnelles essentielles et fourniront, conformément à leurs priorités et selon leurspossibilités, les moyens nécessaires pour entreprendre des actions et procéder à desinvestissements prioritaires. Pour leur part, les gouvernements occidentaux, laCommission des Communautés européennes, les organisations internationales et les

institutions financières poursuivront et renforceront leur soutien aux réformes et auxprojets et programmes prioritaires spécifiques.

9.2 Ce partenariat devrait inclure une coopération entre les différents niveaux des pouvoirspublics, les autorités locales, les institutions financières locales, les secteurs industrielsprivés et les secteurs indépendants dont la participation est indispensable. Enconséquence, nous encouragerons et favoriserons la participation active des secteurs nonstructurés, y compris les principaux groupes mentionnés à l'agenda 21, en commentantpar la diffusion et le commentaire d'informations sur le processus de mise en oeuvre.

9.3 Nous prenons note des Principes directeurs sur l'environnement, l'industrie ainsi que lesdécisions relatives à l'investissement en Europe centrale et orientale, adoptés par laConférence de Budapest de novembre 1991.

9.4 Nous appelons à la stricte application de normes et de prescriptions respectueuses del'environnement à la mise en oeuvre de toute assitance aux pays d'Europe centrale etorientale fournie par des gouvernements, des organisations internationales et desinstitutions financières.

10. Nous soutenons fermement la création d'un processus efficace de mise en «œuvre duPAK et de surveillance et de vérification de cette mise en oeuvre, en prenant lesmesures suivantes:

10.1 Nous nous engagons à accroître les investissements et à promouvoir les actionsfondées sur des projets pour améliorer la situation de l'environnement en Europecentrale et orientale. Nous envisageons de poursuivre cet objectif en intensifiant lesrelations entre les donateurs, les institutions financières internationales et les paysd'Europe centrale et orientale.

En lançant un programme d'action immédiat, nous créons un cadre qui facilitera leprocessus de préparation des projets et d'investissement. Ce programme aura pourobjectifs de renforcer les relations entre les donateurs, les institutions financièresinternationales et les pays d'Europe centrale et orientale, et de faciliter lamobilisation des ressources qui sont destinées à ces derniers à des fins d'investissement etpour aider à canaliser vers la région des ressources nouvelles et les ressources existantes.

Nous demandons la création et/ou le renforcement d'organes nationaux et locaux quiidentifierons, prépareront et mettront en oeuvre, en tant que de besoin, les projetsd'investissements. Nous accueillons avec satisfaction la création d'un Comité depréparation des projets composé de représentants de donateurs significatifs quicontribuent au cadre pour la préparation de projets, et des institutions financièresinternationales avec la pleine participation des pays d'Europe centrale et orientale. Cecomité communiquera régulièrement des informations sur ses activités aux Etatsmembres de la CEE / ONU.

Un personnel réduit, utilisant les ressources existantes, sera mis à la disposition duComité de préparation des projets pour l'assister dans ses travaux pendant une période detemps après laquelle le Comité définira ses besoins futurs en personnel.

Le Comité de préparation des projets contribuera à fournir des études de faisabilitéconduisant à des projets d'investissements concrets; il identifiera des sources possiblesde financement de petits projets comme de projets nécessitant des capitaux plus

importants, y compris ceux du secteur privé. Pour développer la capacité des paysd'Europe centrale et orientale à élaborer des propositions de projets, le Comitétiendra compte des efforts entrepris dans le cadre plus large de la mise en oeuvre duPAE.

Nous nous réjouissons de l'initiative prise par certains pays et les Communautéseuropéennes de participer à ce processus en réservant des fonds spécifiques dans ce butet félicitons les institutions financières internationales qui sont disposées à le soutenireffectivement.

10.2 Les systèmes d'information existants sur les mouvements de ressources serontrationalisés pour que soit disponible une base de données perfectionnée englobant tousles pays en transition visés par le PAE. La CEE/ONU, l'OCDE et la Commission desCommunautés européennes, en collaboration avec le PNUE, l'ONUDI, la Banquemondiale et la BERD présenteront des propositions coordonnées sur le processus desuivi, d'ici a la fin de l'année.

On s'efforcera spécialement de diffuser dans les pays bénéficiaires des informations surles mouvements de ressources par le biais des services d'information locaux et l'édition depublications. Eu égard au manque d'expérience des pays d'Europe centrale et orientaledans ce domaine, l'aide de l'Ouest serait particulièrement utile.

10.3 Les mécanismes de coordination des programmes d'aide aux pays en transition visés parle PAE seront renforcés sur la base de propositions résultant du processus depréparation, y compris celles figurant au paragraphe 10.1.

10.4 Tous les partenaires intéressés entreprendront de revoir, le cas échéant, la mise enoeuvre du PAE, notamment par le biais d'examens des performances environnementales,et ils conserveront au PAE son caractère évolutif; celui-ci devra être développé à lalumière de l'expérience acquise et adapté aux conditions spécifiques à chaque pays.

IL La pollution transfrontière cause des dégâts croissants aux écosystèmes, aux forêts, auxsols, aux cours d'eau, aux lacs et aux infrastructures créées par l'homme. Nousdemandons que soient engagés, dans le cadre du PAE, des actions et des programmesdestinés à aborder les problèmes tant locaux que transfrontières sous tous leurs aspects,y compris des investissements appropriés et opportuns, et tenant dûment compte desconventions internationales pertinentes. Les potentialités de synergies en matière de luttecontre les problèmes locaux et transfrontières devrait être pleinement utilisées. Nousdemandons en outre la conclusion du deuxième protocole relatif au soufre dans le cadrede la Convention sur la pollution atmosphérique transfrontière à longue distance.

CONSERVATION DE LA DIVERSITE BIOLOGIQUE

12. Nous accueillons favorablement la suggestion de déclarer 1995 "Année européenne dela conservation de la nature" et nous entérinons le rapport du Conseil de l'Europeintitulé "La conservation de la nature en Europe - Une action globale à l'échelle ducontinent - Quelques aspects importants" qui constituera une importante base dediscussion.

13. Le Conseil de l'Europe, en collaboration avec l'UICN, le PNUE, la Commission desCommunautés européennes ainsi que les gouvernements et organisations intéressés,

poursuivra des activités concernant les zones protégées, en favorisant l'élaboration deméthodes visant à une utilisation durable des ressources naturelles, d'une législation typeet de projets pilotes destinés à promouvoir un tourisme écologiquement viable, y comprisdans le domaine de l'éducation et de la formation.

14. Nous demandons, dans le cadre du PAE, une analyse et des propositions plus détailléesqui puissent se concrétiser par des actions sur le terrain, visant à la conservation et à uneexploitation durable de la diversité biologique et de la diversité des paysages, notammentsous forme de projets types préparés sur le site et d'un renforcement des institutions.

RAPPORT SUR L'ETAT DE L'ENVIRONNEMENT EN EUROPE

15. Nous entérinons le rapport intérimaire relatif à la préparation du Rapport sur l'état del'environnement en Europe. Ce rapport sera disponible pour les gouvernements à la fin del'année 1993 et il servira de base au développement futur du Programme écologique pourl'Europe (PEE). Il sera examiné lors de notre prochaine Conférence ministérielle.

PROGRAMME-ECOLOGIQUE POUR L'EUROPE

16. Nous entérinons le rapport établi par les Conseillers des gouvernements de laCEE/ONU pour les problèmes de l'environnement et de l'eau intitulé "Eléments pourun programme écologique à long terme pour l'Europe".

17. Nous souhaitons que l'Agence européenne pour l'environnement, dès qu'elle aura étéformellement instituée par les Communautés européennes, devienne, dans la mesure dupossible, un instrument européen permettant de recueillir et d'analyser des données defaçon coordonnée.

IX. Tout en réaffirmant notre engagement en faveur du principe "pollueur-payeur" tel qu'ilfigure dans le principe 16 de la Déclaration de Rio, nous reconnaissons que pourl'application de ce principe, il est nécessaire de tenir compte des situations particulièresdans lesquelles se trouvent les pays d'Europe centrale et orientale durant leur phase detransition vers l'économie de marché. Nous appelons de nos voeux une intensification desefforts destinés à élaborer et à utiliser des instruments de politique novateurs pour lagestion de l'environnement, y compris la prévention des catastrophes écologiquescausées par l'homme.En particulier:

18.1 Nous demandons que l'OCDE en collaboration avec la CEE/ONU continue d'étudier lesvoies et moyens permettant de faciliter une utilisation plus large des instrumentséconomiques et fiscaux dans la région de la CEE/ONU, et élabore des recommandationsconcrètes sur la façon d'y parvenir.

IX.2 Nous demandons un examen approprié du partage de la charge liée à l'aide apportée auxpays pour mener à bien des projets dans le cadre du Programme d'action pourl'environnement et à réaliser les objectifs fixés par les protocoles à la Convention sur lapollution atmosphérique transfrontière à longue distance, dans les limites des flux deressources financières à destination des pays d'Europe centrale et orientale. Dans le cadredu protocole relatif au soufre, en cours d'élaboration, nous encourageons l'OrganeExécutif de la convention à étudier, le cas échéant, la possibilité d'utiliser de nouveaux

instruments visant à faciliter la mobilisation des ressources. Les gouvernements intéresséspoursuivront, en tant que besoin, des consultations sur cette question avec les institutionsconcernées, selon les besoins.

IX.3 Nous saluons l'émergeance d'un consensus sur l'importance de coordonner l'utilisationd'instruments économiques et fiscaux, y compris ceux visant à réduire les émissions deCO2, afin de garantir l'efficacité des efforts entrepris. Nous apprécions les progrès déjàaccomplis à cet égard et nous demandons que soient prises, dès que possible, desdécisions sur de telles mesures dans la Communauté européenne et ses Etats membres,ainsi que dans tous les autres pays industrialisés, tout en tenant compte des situations et(.les politiques des pays concernés pris individuellement. Les délégations européennes ontfortement insisté pour que soient prises, en temps opportun, des décisions pour créer dèsque possible une taxation qui conduise à une limitation effective des émissions de CO2 eta une amélioration de l'efficacité énergétique.

19. Compte tenu de la persistance de graves préoccupations concernant les installationsnucléaires non sûres, sept ans, presque jour pour jour, après la catastrophe deTchernobyl, nous soutenons vigoureusement le programme d'action multilatéral du G-7,ainsi que d'autres programmes internationaux et nationaux sur la sûreté d'exploitation, lesaméliorations techniques des centrales fondées sur des études de sûreté, ainsi que lerenforcement des réglementations. Un soutien supplémentaire des pays membres del'OCDE au programme du G-7 est nécessaire et sera le bienvenu. Ces mesures devraients'accompagner, grâce à une intensification de la coopération internationale, del'élimination progressive, aussitôt que possible, des installations nucléaires non sûres, enparticulier les réacteurs nucléaires non sûrs, de mesures visant à promouvoir uneutilisation plus rationnelle de l'énergie, du développement de sources d'énergies nouvelleset renouvelables et de réactions plus rapides et plus effficaces aux situations d'urgenceécologique dans ce domaine1.

20. Nous appelons de nus voeux la prompte conclusion des négociations sur le Traité de laCharte européenne de l'énergie et des protocoles y relatifs concernant l'efficacitéénergétique et les aspects environnementaux des systèmes énergétiques.

21. La CEE/ONU élargira, dans la mesure de ses ressources, la portée de sa campagne"Efficacité énergétique 2000" pour souligner le rôle des mesures liées à l'efficacitéénergétique et des sources d'énergie renouvelables dans la réduction des émissions de gazà effet de serre et de substances acidifiantes, d'une part, et pour déterminer les cas danslesquels élaborer des normes et un système de labellisation relatif à l'efficacitéénergétique, d'autre part.

22. Nous demandons une intensification des efforts de coopération visant à renforcer lesinstruments et mécanismes de surveillance, de respect et d'exécution des lois et politiquesrelatives à l'environnement. En particulier:

22.1 Le programme de l'OCDE concernant l'examen des performancesenvironnementales des pays Membres sera développé et progressivement élargi àl'Europe centrale et orientale, en collaboration avec la CEE/ONU, initialement par lebiais de trois études pilotes en Pologne, en Bulgarie et au Belarus.

1 L'Aulriche. l'Islande. l'Irlande, le Luxembourg, la Norvège et la Suéde auraient préférer inclure dans ceparagraphe la phrase suivante: "En général, l'utilisation de l'énergie nucléaire devrait être graduellementabandonnée à long terme".

22.2 Nous invitons la CEE/ONU à élaborer des propositions visant à la création demécanismes juridiques, réglementaires et administratifs pour encourager la participationdu public à la prise de décisions liées à l'environnement, et à l'adoption de mesures d'unbon rapport coût/efficacité pour favoriser la participation du public et assurer, encollaboration avec les secteurs indépendants, la formation et l'éducation, afin que lepublic soit mieux à même de comprendre la pertinence des informations surl'environnement.

22.3 Nous invitons l'OCDE à concevoir, en collaboration avec la CEE/ONU, le PNUE et lesautres organisations internationales compétentes, tout en poursuivant les activités déjàentreprises dans ce domaine, une approche intégrée de la prévention de la pollutionet du contrôle de la pollution.

23. Nous approuvons le rapport relatif aux instruments juridiques internationaux, du 2avril 1993, qui demande une surveillance efficace ainsi que l'amélioration de la mise enoeuvre et du respect de ces instruments dans le domaine de l'environnement.

23.1 Nous prions instamment les Parties aux Conventions sur l'environnement de la régionde la CEE / ONU de coopérer, le cas échéant, au sein des organes directeurs respectifsde ces conventions afin de mettre en place des régimes de non-conformité qui :- tendent à éviter la complexité;- soient non conflictuels;- soient transparents;- laissent aux Parties contractantes le soin de déterminer la compétence en matière de

décisions à prendre;- laissent aux Parties à chaque convention le soin d'examiner quelle aide technique et

financière peut être nécessaire dans le cadre d'un accord spécifique;- comporte un système et des procédures de rapports transparents et révélateurs, selon

ce qui sera convenu par les Parties.

23.2 Nous prions instamment les Parties aux Conventions sur l'environnement de la régionCEE / ONU de coopérer au sein des organes directeurs respectifs pour prendre desmesures appropriées visant à :- mieux faire connaître les objectifs et obligations des Conventions sur l'environnement

de la région CEE/ONU;- aider les gouvernements à créer les structures administratives et juridiques nécessaires,

y compris des mécanismes d'exécution et de mise en oeuvre, notamment en instaurantou en poursuivant l'élaboration de principes directeurs, en participant -sur demande- àla rédaction de textes législatifs, et en procédant à l'échange d'experts juridiques ettechniques;

- faciliter la participation régulière de représentants des pays en transition aux réunions;- fournir toutes les informations pertinentes concernant la mise en oeuvre, sans qu'une

demande expresse ait été nécessairement formulée.

24. Nous demandons à tous les Etats membres de la CEE/ONU et de la Communautéeuropéenne d'envisager le plus rapidement possible la ratification ou, le cas échéant,l'adhésion aux Conventions sur l'environnement dans la région de la CEE / ONU.

LE PROCESSUS "UN ENVIRONNEMENT POUR L'EUROPE"

25. Nous exprimons notre reconnaissance au Gouvernement de la Bulgarie qui a proposéd'accueillir et de préparer notre prochaine Conférence ministérielle en 1995. Certainsgouvernements ont annoncé qu'ils fourniraient au Gouvernement de la Bulgarie lesoutien nécessaire.

Le Gouvernement de la Bulgarie constituera un comité international d'organisation .

L'ordre du jour de notre prochaine réunion inclura l'examen de la mise en oeuvre duProgramme d'action pour l'environnement, y compris la conservation de la nature, etl'élaboration ultérieure du Programme écologique pour l'Europe par un examen de l'étatd'avancement des travaux effectués sur les premiers éléments, et par l'intensification denotre coopération dans d'autres domaines, tels que le transport et l'environnement, lapollution atmosphérique et la pollution des eaux transfrontières ou les établissementshumains.

26. Les Conseillers des gouvernements des pays de la CEE/ONU pour les problèmes del'environnement et de l'eau constitueront un groupe de travail spécial composé dehauts-fonctionnaires. La Commission des Communautés européennes, les organisationset les institutions financières internationales, le PNUE et les secteurs indépendantsinternationaux actifs dans la région de la CEE/ONU seront invités à participer.

Le groupe de travail servira d'organe central de coordination pour le développementultérieur du processus "Un environnement pour l'Europe". Il supervisera le suivi de laConférence de Lucerne et la préparation sur le fond de notre prochaine Conférenceministérielle. Il poursuivra en particulier le développement du Programme écologiquepour l'Europe (PEE) sur la base du Rapport sur l'état de l'environnement en Europe, quidoit être publié avant la fin de 1993.

27. Une équipe spéciale créée par les Ministres, co-présidée par la Commission desCommunautés européennes et, à tour de rôle, par un pays d'Europe centrale etorientale, dont le secrétariat sera fourni par l'OCDE, bénéficiant du soutien actif de laBanque mondiale et de la BERD, et à laquelle participeront les gouvernements intéressésainsi que d'autres organisations et institutions financières internationales, poursuivra lamise en oeuvre du Programme d'action pour l'environnement en Europe centrale etorientale. Il conviendrait de trouver un moyen de d'impliquer les secteursindépendants dans le processus; l'OCDE soumettra des propositions concernant lesmécanismes adéquats, y compris pour les compte rendus.

L'équipe spéciale, dans la conduite de ses travaux institutionnels et de politique, semettra en relation avec le Comité de préparation des projets en ce qui concerne lesinvestissements coordonnés dans le cadre de la préparation des projets. Elle faciliterala préparation de projets nationaux et locaux et l'aide aux organes d'investissement.

28. Le Conseil de l'Europe, en collaboration avec l'UICN et d'autres organisationsinternationales gouvernementales et non gouvernementales compétentes, poursuivra lesprocessus de mise en oeuvre, d'examen et d'adaptation pour la conservation de la nature.

29. Les rapports intérimaires sur les travaux préparatoires et autres activités connexesseront soumis à la Conférence ministérielle par l'intermédiaire du groupe de travail adhoc de hauts-fonctionnaires, organe central de coordination (cf. paragraphe 26).

30. April 1993

ERKLÄRUNGder Umweltminister der Region der UNO-Wirtschaftskommission für Europa (UN/ECE)und des für die Umwelt zuständigen Mitglieds der Kommission der EuropäischenGemeinschaften i

DIE POLITISCHE DIMENSION DES PROZESSES "UMWELT FÜR EUROPA"

1. Wir sind entschlossen, unsere Zusammenarbeit auf dem Gebiet des Umweltschutzesin Europa zu intensivieren, uns unserer weltweiten Verantwortung zu stellen undden anderen Regionen der Welt unsere Partnerschaft anzubieten. Wir werdendarauf hinarbeiten, daß sich Handlungen innerhalb eines Landes nicht nachteilig aufdie Umwelt anderer Länder auswirken. Wir werden insbesondere all jeneUmweltprobleme zu mindern suchen, die die Gesundheit des Menschenbeeinträchtigen.

2. Wir werden auf regionaler, überregionaler und bilateraler Ebene engerzusammenarbeiten, um unser natürliches Erbe zu bewahren und fortschreitendeSchäden an unserer gemeinsamen Umwelt zu verhindern. Wir sind entschlossen, dieökologische und kulturelle Vielfalt zu erhalten, gefährdete Arten zu bewahren undstark geschädigte Gebiete und Ökosysteme in unserer Region wiederherzustellen.

3. Unsere auf die Konvergenz von Umweltqualität und Uniweitpolitik in Europaabzielende Zusammenarbeit leistet einen bedeutsamen Beitrag zur Integration undbildet einen der Eckpfeiler für den Aufbau des neuen Europa. Mit dieser Zu-sammenarbeit und mit unserem Eintreten für Frieden, Stabilität und für einedauerhafte umweltgerechte Entwicklung handeln wir im Sinne der Beschlüsse undEmpfehlungen der Konferenz über Sicherheit und Zusammenarbeit in Europa (KSZE)und der Konferenz der Vereinten Nationen über Umwelt und Entwicklung (UNCED);wir ergänzen und verstärken die Zusammenarbeitsanstrengungen im Rahmenbestehender internationaler Foren und Umweltübereinkommen und beziehen dabei alleRegierungsebenen und die informellen Sektoren mit ein.

DER KONFERENZ VON LUZERN VORAUSGEGANGENE ARBEITEN

4. Die Ministerkonferenz "Umwelt für Europa" auf Schloss Dobris im Juni 1991, die aufdie Konferenzen von 1990 in Bergen und Dublin aufbaute, forderte einUmweltaktionsprogramm für Mittel- und Osteuropa, einen vor Ende 1993fertigzustellenden Umweltzustandsbericht für Europa, sowie ein längerfristigesUmweltprogramm für Europa.

5. Zu all diesen Themen haben Regierungen, die Kommission der EuropäischenGemeinschaften, internationale Organisationen, Finanzinstitute und informelleSektoren umfassende und koordinierte Vorbereitungsarbeiten geleistet. Zu deneinzelnen Punkten sind wir zu folgenden Schlussfolgerungen gelangt:

IJMWKLI -AKTIONSPROGRAMM FÜR MITTEL- UNI) OSTKUROPA

6. Wir heissen die breitangelegte Strategie des Umwelt-Aktionsprogramms fürMittel- und Osteuropa (UAP) mit ihren Grundsätzen und allgemeinen Prioritätengut, und zwar als Handlungsgrundlage für staatliche Stellen auf nationaler und lokalerEbene, für die Kommission der Europäischen Gemeinschaften sowie für internationaleInstitutionen und Finanzinstitute und private Investoren, die in der Region tätig sind.

7. Das UAP stellt ein Einvernehmen dar über einen breitangelegten Ansatz, derfolgende drei Schwerpunkte umfasst:

- die Integration ökologischer Gesichtspunkte in tien Prozeß des wirtschaftlichenWiederaufbaus, um eine nachhaltige Entwicklung zu gewährleisten;

- die Schaffung institutioneller Kapazitäten (leistungsfähiger rechtlicher undadministrativer Rahmen, Managementkapazitäten, Ausbildung und Erziehung);

- Soforthilfeprogramme mit Massnahmen, die unmittelbar oder kurzfristigLinderung verschaffen in Regionen, in denen die Gesundheit der Menschen oderdie natürlichen Ökosysteme (.lurch Umweltrisiken schwer gefährdet sind, wobeiebenfalls die grenzüberschreitenden Umweltprobleme einbezogen werden. DasUAP gibt auch Musterbeispiele für Investitionsprojekte in vorrangigenBereichen.

X. Die wirtschaftliche Umgestaltung in Mittel- und Osteuropa sollte in vielerHinsicht positive Auswirkungen auf die Umweltqualität haben. Es wird jedochweiterhin Gegenden geben, wo die Umweltverschmutzung die menschlicheGesundheit beeinträchtigt, Oekosysteinen irreversible Schäden drohen oder wo diewirtschaftlichen Kosten der Umweltschäden sehr hoch sind.

Das UAP zeigt auf, wie diese vordringlichen Probleme in einer kostenwirksamenWeise angegangen werden können, gestützt auf Erfahrungen aus früheren undlaufenden Programmen. Es liefert Vorschläge für die Verstärkung oder Neuorien-tierung laufender Programme, sowie für deren bessere Koordinierung. Esunterstreicht die Notwendigkeit internationaler Zusammenarbeit in verschiedenenFormen, darunter Investitionen und Joint Ventures, zur Erleichterung desTransfers umweltgerechter Technologien, und für Schritte auf die Anwendunginternationaler Normen hin, ohne die wirtschaftlichen und finanziellen Problemeausser Acht zu lassen, welche der Uebergang zur Marktwirtschaft mit sich bringt.

9. Wir unterstützen nachdrücklich die partnerschaftliche Umsetzung derbreitangelegten Strategie des UAP.

9.1 Regierungen der mittel- und osteuropäischen Länder werden grundlegendepolitische und institutionelle Reformen durchführen sowie - nach Massgabe ihrerPrioritäten und Möglichkeiten - Mittel für Maßnahmen und vorrangige Investitionenbereit stellen, während die westlichen Regierungen, die Kommission derEuropäischen Gemeinschaften und die internationalen Organisationen undFinanzinstitute ihre Unterstützung von Reformen und spezifischen vorrangigenProjekten und Programmen weiterführen und verstärken werden.

9.2 Diese Partnerschaft sollte die Zusammenarbeit zwischen verschiedenenRegierungsebenen, lokalen Behörden, lokalen Finanzinstituten, derPrivatwirtschaft und die unentbehrliche Teilnahme der informellen Sektoreneinschließen. Wir werden deshalb die aktive Teilnahme der informellen Sektoren,darunter die wichtigsten der in der Agenda 21 erwähnten Gruppen, ermutigenund fördern und zwar zunächst durch regelmässige Verbreitung und Diskussion derden Umsetzungsprozess betreffenden Informationen.

9.3 Wir nehmen Kenntnis von den Leitlinien für Umwelt, Industrie undInvestitionsentscheide in Mittel- und Osteuropa, die an der Konferenz vonBudapest im November 1991 verabschiedet wurden.

9.4 Wir fordern die strikte Anwendung umweltverträglicher Normen undAnforderungen bei Unterstiitzungsmassnahmen für Mittel- und Osteuropa durchRegierungen, internationale Organisationen und Finanzinstitute.

10. Wir befürworten entschieden die Einführung eines wirksamen Prozesses derUmsetzung, Aufsicht und Ueberprüfung des UAP mittels folgender Schritte:

10.1 Wir verpflichten uns, zur Verbesserung der Urnweltsituation in Mittel- und Osteuropaverstärkt Investitionen vorzunehmen und projektorientierte Maßnahmen zufördern. Zu diesem Zweck beabsichtigen wir, die Beziehungen zwischen Geldgebern,internationalen Finanzinstituten und mittel- und osteuropäischen Ländern zu festigen.

Indem wir ein Sofort-Aktionsprogramm in die Wege leiten, setzen wir den Rahmenzur Förderung des Projektvorbereitungs- und Investitionsprozesses. Seine Zielesind die Stärkung des Zusammenwirkens von Geldgebern, internationalenFinanzinstituten und mittel- und osteuropäischen Ländern sowie die Förderungder Investitionsmittelbeschaffung und die Mithilfe bei der Kanalisierung neuer sowiebestehender Mittel in die Region.

Wir fordern die Bildung und/oder Stärkung nationaler und lokaler Einrichtungen,die erforderlichenfalls Investitionsprojekte konzipieren, planen und verwirklichen. Wirbegrüßen die Bildung eines Projektvorbereitungsausschusses (PPC), bestehend auswichtigen Geldgebern, die zum Projektvorbereitungsrahmen beitragen, undinternationalen Finanzinstituten, möglichst unter voller Beteiligung der mittel- undosteuropäischen Länder. Der PPC wird die UN/ECE-Mitgliedstaaten regelmässigüber seine Tätigkeit unterrichten.

Ein kleiner Mitarbeiterstab aus bestehenden personellen Mitteln wird dem PPC füreine bestimmte Zeitdauer zur Verfügung gestellt. Danach legt der PPC seinenzukünftigen Bedarf an Personal fest.

Der PPC wird dazu beitragen, dass Durchführbarkeitsstudien erstellt werden, welchezu konkreten Investitionsprojekten führen. Er wird mögliche Quellen zurFinanzierung sowohl kleiner als auch kapitalintensiver Projekte identifizieren,einschliesslich solcher aus dem Privatsektor. Der PPC wird die im größerenZusammenhang mit der Durchführung des UAP unternommenen Bemühungenberücksichtigen, die Fähigkeit der mittel- und osteuropäischen Länder zurErarbeitung von Projektvorschlägen zu stärken.

Wir begrüßen die Initiative einzelner Länder und der Europäischen Gemeinschaften,an diesem Prozeß teilzunehmen, indem sie spezifische Geldmittel zu diesem Zweckbereitstellen, sowie die Bereitschaft internationaler Finanzierungsinstitute, diesenProzeß aktiv zu unterstützen.

10.2 Bestehende Informationssysteme über den Geldmittelfluss werden rationalisiert,damit eine verbesserte Datenbank entsteht, die alle Länder im Übergang, die vomUAP abgedeckt werden, mit einbezieht. Die UN/ECE, die OECD und die EG-Kommission werden in Zusammenarbeit mit dem UNEP, der UNIDO, der Weltbankund der EBWE dem Folgeprozess bis Ende des Jahres koordinierte Vorschlägehiezu unterbreiten.

Es werden besondere Anstrengungen gemacht werden, die Empfängerländer durchInformationsstellen vor Ort und mittels Publikationen über den Geldmittelfluss zuinformieren. Dabei wäre westliche Hilfe in Anbetracht der fehlenden Erfahrung dermittel- und osteuropäischen Länder mit solchen Ansätzen besonders nützlich.

10.3 Die Mechanismen zur Koordinierung der Unterstützung an Länder imUebergang, auf die sich das UAP bezieht, werden auf der Grundlage der aus demVorbereitungsprozess hervorgegangenen Vorschläge, einschliesslich der inParagraph 10.1 enthaltenen Vorschläge, verstärkt.

10.4 Alle beteiligten Partner werden die Umsetzung des UAP soweit zweckmässigüberprüfen, unter anderem mit Hilfe von Umweltprüfberichten. Sie werden das UAPals évolutives Dokument beibehalten, das aufgrund der gewonnenen Erfahrungenweiterzuentwickeln und an die spezifischen Umstände der verschiedenen Länderanzupassen ist.

11. Grenzüberschreitende Umweltverschmutzung führt zu wachsenden Schäden anÖkosystemen, Wäldern, Böden, Wasserläufen, Seen und künstlich geschaffenenAnlagen. Wir fordern im Rahmen des UAP Maßnahmen und Programme, die sowohllokale als auch grenzüberschreitende Probleme umfassend angehen. Dazu gehörenauch angemessene und rechtzeitig vorgenommene Investitionen unter Berück-sichtigung der massgeblichen internationalen Uebereinkommen. Das Potential, in derBekämpfung lokaler und grenzüberschreitender Probleme eine Synergiewirkung zuerlangen, sollte voll ausgeschöpft werden. Ferner fordern wir den Abschluß deszweiten Schwefel Protokolls im Rahmen des Uebereinkommens über dieweiträumige grenzüberschreitende Luftverschmutzung.

SCHUTZ DER BIOLOKISCHEN VIELFALT

12. Wir begrüßen die Initiative für ein Europäisches Naturschutzjahr 1995 undschließen uns dem Bericht des Europarates über "Naturschutz in Europa. EineGesamtstrategie für den ganzen Kontinent: Einige wichtige Aspekte" an, der einebedeutende Diskussionsgrundlage darstellt.

13. Der Europarat wird in Zusammenarbeit mit der IUCN, dem UNEP, der EG-Kommission und interessierten Regierungen und Organisationen seine Tätigkeit inBezug auf geschützte Gebiete fortsetzen und die Entwicklung von Methoden füreine nachhaltige Nutzung natürlicher Ressourcen fördern, wie auch von

Mustergesetzen und Pilotprojekten zur Förderung eines umweltverträglichenTourismus, u.a. durch Aufklärung und Schulung.

14. Im Rahmen des UAP fordern wir detailliertere Analysen und Vorschläge für dienachhaltige Nutzung und Erhaltung der biologischen und landschaftlichenVielfalt, insbesondere in Form von standortbezogenen Musterprojekten und derStärkung der Institutionen, ausgerichtet auf praktische Massnahmen vor Ort.

UMWELTZUSTANDSBERICHT FÜR EUROPA

\5. Wir heissen den Fortschrittsbericht über den Umweltzustandsbericht fürEuropa gut. Dieser Bericht wird den Regierungen Ende 1993 verfügbar werden undals Grundlage für die weitere Entwicklung des Europäischen Umweltprogramms(EPE) dienen. Wir werden uns anlässlich unserer nächsten Ministerkonferenz mitdiesem Bericht befassen.

UMWKLTPRüCKAMM FUR EUROPA

16. Wir heissen den Bericht der Chefberater der ECE-Regierungen über Umwelt- undWusserprobleme (SAEWP) zum Thema "Elemente für ein langfristigesUmweltprogramm für Europa (EPE)" gut.

17. Wir fordern, daß die Europäische Umweltagentur, sobald sie durch dieEuropäischen Gemeinschaften förmlich errichtet worden ist, soweit möglich zu einemeuropäischen Koordinierungsinstrument für die Erhebung und Auswertung vonUmweltdaten ausgebaut wird.

18. Gleichzeitig mit der erneuten Bekräftigung des im Prinzip 16 der Rio-Erklärungverankerten Verursacherprinzips anerkennen wir, daß die besonderen Umstände dersich im Übergang zur Marktwirtschaft befindenden MOE-Länder bei der Anwendungdieses Grundsatzes zu berücksichtigen sind. Wir fordern intensivere Anstrengungenzur Entwicklung und Anwendung innovativer Politikinstrumente für dasUmweltmanagement, u.a. zur Verhinderung von durch Menschen verursachtenUmweltkatastrophen. Im einzelnen erklären wir hierzu folgendes:

1X.1 Wir ersuchen die OECD in Zusammenarbeit mit der UN/ECE, die Abklärung zuvertiefen, wie ein breiterer Einsatz von wirtschaftlichen und fiskalischenInstrumenten im Gebiet der UN/ECE zu erleichtern wäre, sowie konkreteEmpfehlungen zur Erreichung dieses Ziels zu erarbeiten.

IS.2 Wir fordern die angemessene Erwägung einer Lastenteilung, um die Länder bei derDurchführung von UAP-Projekten und bei der Verwirklichung von den in denProtokollen des Uebereinkommens über die weiträumige grenzüberschreitende Luft-verschmutzung festgehaltenen Zielsetzungen zu unterstützen, und zwar im Rahmendes Mittelflusses nach mittel- und osteuropäischen Ländern. Was das z. Z. inAusarbeitung befindliche Schwefelprotokoll anbelangt, fordern wir dasausführende Organ für das Uebereinkommen auf, gegebenenfalls den möglichenEinsatz neuer Instrumente zur Förderung der Mittelbeschaffung zu untersuchen.

Interessierte Regierungen werden, wo angemessen, zu diesen Fragen Konsultationenmit den betreffenden Institutionen weiterführen.

18.3 Wir begrüßen den im Entstehen begriffenen Konsens über die Bedeutung derKoordinierung des Einsatzes wirtschaftspolitischer und steuerlicher Instrumente,einschliesslich jener, die die Senkung von C(>2-Emissionen betreffen, um sowirksame Bemühungen sicherzustellen. Wir schätzen die in diesem Zusammenhangbereits unternommenen Schritte und fordern eine möglichst rasche Entscheidungüber solche Maßnahmen durch die Europäische Gemeinschaft, ihre Mitgliedstaatenund alle übrigen Industrieländer, jedoch unter Berücksichtigung der jeweiligenUmstände und Politiken der einzelnen Länder. Die europäischen Delegationendrängten auf eine rasche Entscheidungen über die baldest mögliche Einführungeiner Besteuerung, die zu einer wirksamen Minderung des C(>2-Ausstosses undzu einer effizienteren Nutzung der Energie führt.

19. Angesichts der anhaltenden schweren Besorgnis über unsichere kerntechnischeAnlagen unterstützen wir nachdrücklich- praktisch auf den Tag genau sieben Jahrenach dem Unfall von Tschernobyl - das multilaterale Aktionsprogramm der G-7sowie andere internationale und nationale Programme für Betriebssicherheit,technische Verbesserungen an Anlagen auf der Grundlage von Sicherheitsprüfungensowie die Verschärfung von Betriebsvorschriften. Zusätzliche Unterstützung des Cï-7-Programmes durch andere OECD-Länder ist nötig und wird begrüßt. Diesesollte mittels verstärkter Zusammenarbeit begleitet sein von einer möglichst baldigenschrittweisen Stillegung von unsicheren Kernanlagen, insbesondere vonunsicheren Kernreaktoren, von der Förderung einer effizienteren Energienutzung,von der Entwicklung neuer und erneuerbarer Energiequellen und von derVerbesserung sofortiger und wirksamer Gegenmassnahmen bei entsprechendenökologischen Notfällen. '

20. Wir fordern einen raschen Abschluß der Verhandlungen zum EuropäischenEnergiecharta Vertrag und der dazugehörigen Protokolle über Energieeffizienz unddie Uniweitaspekte von Energiesystemen.

21. Die UN/ECE wird, sofern es die vorhandenen Mittel erlauben, den Wirkungskreisihrer Kampagne "Energy Efficiency 2000" erweitern, um die Wichtigkeit vonMaßnahmen zur effizienten Energienutzung und erneuerbarer Energiequellen für dieSenkung der Treibhausgasemissionen und säurebildenden Substanzen zuunterstreichen, und um Möglichkeiten zu identifizieren für die Entwicklung vonEnergieeffizienz-Normen und entsprechender Gütezeichen.

22. Wir fordern eine Intensivierung der gemeinsamen Bemühungen zur Stärkung vonInstrumenten und Mechanismen zur Ueberwachung, Einhaltung undUmsetzung von Umweltrecht und - politik. Hierzu erklären wir insbesondere:

22.1 Das Programm der Länder-Prüfberichte (Country Environmental PerformanceReview Programme) der OECD wird in Zusammenarbeit mit der UN/ECE

'Österreich, Island, Irland. Luxemburg, Norwegen und Schweden halten den Einschluss in diesen Absatz desnachstehenden Satzes vorgezogen:

"Langfristig sollte der Ausstieg aus der generellen Nutzung der Kernenergie erfolgen."

weiterentwickelt und schrittweise auf Mittel- und Osteuropa ausgedehnt, zunächst mitdrei Pilotprüfungen Polens, Bulgariens und Weißrußlands.

22.2 Wir fordern von der UN/ECE die Ausarbeitung von Vorschlägen für gesetzliche,regulative und administrative Mechanismen, durch die die Beteiligung derÖffentlichkeit am Entscheidungsprozeß in ökologischen Belangen gefördert wird,sowie für entsprechende kostenwirksame Maßnahmen, wie auch für die Bereitstellung- in Zusammenarbeit mit den informellen Sektoren - von Aufklärungs- undSchulungsmöglichkeiten, durch die das Verständnis der Öffentlichkeit für dieBedeutung ökologischer Informationen gestärkt wird.

22.3 Wir fordern die OECD auf, in Zusammenarbeit mit der UN/ECE, dem UNEP undweiterer einschlägiger internationaler Organisationen, die bereits auf diesem Gebiettätig sind, ein integriertes Konzept zur Vermeidung und Bekämpfung vonUmweltverschmutzung zu entwickeln.

23. Wir heissen den Bericht über Internationale Rechtsinstrumente vom 2. April 1993gut, der sowohl eine wirksamere Ueberwachung als auch eine verbesserte Umsetzungund Einhaltung internationaler Rechtsinstrumente auf dem Gebiet der Umweltverlangt.

23.1 Wir drängen die Vertragsparteien der Umweltkonventionen in der UN/ECE-Region, wo angemessen, in den jeweiligen ausführenden Organen für dieseUebereinkommen Regeln über die Nichteinhaltung auszuarbeiten. Diese Regeln

sollten

- möglichst einfach gestaltet sein;

- zu keiner Konfrontation führen;

- transparent sein;- den Vertragsparteien die Entscheidung über die Zuständigkeit für die

Beschlussfassung belassen;

- die Erörterung der allenfalls erforderlichen technischen und finanziellen Unter-stützung innerhalb des Rahmens der spezifischen Konvention den Vertragsparteienjeder Konvention überlassen;

- ein offenes und aufschlußreiches Berichterstattungssystem sowie von denVertragsparteien vereinbarte Verfahrensregeln umfassen.

23.2 Wir drängen die Vertragsparteien der Umweltkonventionen in der UN/ECE-Region, in den jeweiligen ausführenden Organen zusammenzuarbeiten, um geeigneteMassnahmen in die Wege zu leiten, durch welche

- die Kenntnis über Ziele der Umweltübereinkommen in der UN/ECE-Region undder aus ihnen entstehenden Verpflichtungen verbessert wird;

- die Regierungen bei der Aufgabe unterstützt werden, die notwendigenadministrativen und gesetzlichen Strukturen, einschliesslich Durchsetzungs- undUmsetzungsmechanismen, zu schaffen, unter anderem durch Einleiten oder

Weiterführen der Ausarbeitung von Richtlinien, durch Unterstützung bei derErarbeitung von Gesetzesentwürfen, wo solche nachgesucht wird, und durch dieErmöglichung des Austausches juristischer und technischer Sachverständiger;

- die regelmäßige Teilnahme der Vertreter von Ländern im Übergangsstadium anden Sitzungen erleichtert wird;

- alle relevanten Informationen in Bezug auf die Durchführung bereitgestellt werden,auch wenn dazu keine ausdrückliche Verpflichtung besteht.

24. Wir fordern alle Mitgliedstaaten der UN/ECK und die EuropäischeGemeinschaft dazu auf, die möglichst baldige Ratifizierung oder gegebenenfalls denBeitritt zu Umweltkonventionen in der UN/ECE-Region zu erwägen.

DER PROZESS "UMWELT FÜR EUROPA"

25. Wir nehmen das Angebot der Regierung von Bulgarien dankend entgegen, unserenächste Ministerkonferenz vorzubereiten und ihr 1995 Gastgeber zu sein. DieRegierungen haben kund getan, daß sie die Regierung Bulgariens in angemessenerWeise dabei unterstützen werden.

Die Regierung Bulgariens wird ein international zusammengesetztesOrganisationskomitee einrichten.

Die Tagesordnung unseres nächsten Treffens wird folgende Punkte enthalten: einePrüfung der Umsetzung des Umweltaktionsprogramms einschliesslich desNaturschutzes; und die Weiterentwicklung des Uniweitprogramms für Europasowohl durch eine Ueberprüfung der Fortschritte der Arbeit an den ursprünglichenElementen als auch durch eine Intensivierung unserer Zusammenarbeit auf anderenGebieten wie Verkehr und Umwelt, grenzüberschreitende Luft- und Wasser-verschmutzung oder dem menschlichen Siedlungsraum.

26. Die Chefberater der ECE-Regierungen für Umwelt- und Wasserprobleme (SAEWP)weiden eine Ad-hoc-Arbeitsgruppe bilden bestehend aus ranghohen Beamten.Die EG-Kommission, internationale Organisationen und Finanzinstitute, das UNEPund die internationalen Organisationen aus dem informellen Sektor, die in derUN/ECE-Region tätig sind, werden zur Teilnahme eingeladen werden.

Die Arbeitsgruppe wird als zentrales Koordinierungsgremium für dieWeiterentwicklung des Prozesses "Umwelt für Europa" dienen. Sie wird denFolgeprozeß der Konferenz von Luzern und die wesentlichen Vorbereitungen fürunsere nächste Ministerkonferenz beaufsichtigen. Sie wird insbesondere an derWeiterentwicklung des Umweltprogramms für Gesamteuropa arbeiten auf derGrundlage des Europäischen Umweltzustandsberichts, der vor Ende 1993 verfügbargemacht werden wird.

27. Eine von den Ministern einberufene Arbeitsgruppe wird die Umsetzung desUmweltaktionsprogramms für Mittel- und Osteuropa fördern. Sie steht unterwechselndem Co-Vorsitz zwischen EG-Kommission und einem mittel- oderosteuropäischen Land. Die OECD, aktiv unterstützt von Weltbank und EBWE,

stellt das Sekretariat. Interessierte Regierungen sowie andere internationaleOrganisationen und Finanzinstitute beteiligen sich daran. Es sollte ein Weg gefundenweiden, den informellen Sektor in diesen Prozeß miteinzubeziehen, und dieOECD wird Vorschläge zu den geeigneten Mechanismen, einschliesslichBerichterstattungsmechanismen, unterbreiten.

Die Arbeitsgruppe wird bei ihrer institutionnellen und politischen Arbeit engenKontakt mit dem PPC pflegen bezüglich Investitionen, die unter demProjektvorbereitungsrahmen koordiniert werden. Die Arbeitsgruppe wird dieUnterstützung nationaler und internationaler Projektvorbereitungs- undInvestitionsgremien fördern.

28. Der Kuroparat wird in Zusammenarbeit mit der IUCN und anderen relevanteninternationalen Organisationen, Regierungs- und Nicht-Regierungsorganisationen dieDurchführungs-, Ueberprüfungs- und Anpassungsprozesse auf dem Gebiet desNaturschutzes weiterführen.

29. Die Tätigkeitsberichte zu diesen und anderen relevanten Vorbereitungsarbeitenwerden der Ministerkonferenz durch die Ad-hoc-(ïruppe der Chefbeamtenunterbreitet, die gemäß Paragraph 26 als zentrales Koordinierungsgremium wirkt.

30 aiipejiH 1993 ro/xa

MHHHCTpOB OKpyacaiomeö cpeflbi CTpaii perHOHa EßponeHCKOö DKOHOMHHCCKOH

KOMHCCHH OpraHH3an,HH OGêAHHeHUbix HauHft (OOH/E3K) M nuena KOMHCCHH

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cHHeprHiecKoro 34)4)eKTa npH perueHHH jioKajibHbix HTpaHcrpaHHHHbix npo6jieM. KpoMe Toro. MW npH3biBaeM K 3aBeptueHHio pa6oxbi

BTopbiM npoTOKojioM no cepe B paMKax KoHBeHUHH oHa 6oJibiiiHe

COXPAHEHHE BHOJIOrMHECKOrO PA3HOOBPA3H5Î

12. Mbi npHBCTCTByeM HHHUHaTHBy npoBeaeHHs B 1995 rojxy EßponeficKoro FOxpaHbi npHpoflbi. H o;to6pHeM «OKJiaa CoßeTa Eßponu Ha TeMy: "OxpaHaripHponbi B Eßpone. Beeo6-beMJiioina3 CTpaTerna KOHTHHeHTajibHoro Macuna6a:HeKoiopbie Ba^cHbie acneKTbi" B KaqecTBe cojiHanofi OCHOBH ZUIH

13. CoBeT EBponbi B coTpyflHHHecTBe c MCOT1. K)HEn. KoMHCCHefi EC H3aHHTepeCOBaHHbIMH IIpaBHTeUbCTBaMH H OpraHH3aUHHMH 6yfleT npOBOflHTbMepOnpHÎITHfl, CBÎOaHHbie C OCO6O OXpaHHeMblMH TeppHTOpHHMH. COflCHCTByHpa3pa6oTKe MCTO/IOB pai^HOHajibHoro Hcnojib3OBaHH« npHpo^Hbix pecypcoB.THnoBoro 3aKOHoaaTejibCTBa H BKcnepHMeHTajibHbix npoeKTOB B ne.n«x

pa3BHTHio TypH3Ma, a TaK>Ke cncieM o6pa3OBaHHfl H nojiroxoBKH

14. Mbi npH3biBaeM - B KOHxeKcre n H O O C - K npoBeaeHHW Gojiec xmaxeJibHoroaHajiH3a H BbipaGoXKe 6onee KOHKpexHbix npeano»:eHHß B XOM. HXO Kacaexca

coxpancHHH H pauHOHajibHoro ncnojib3OßaHHa ÖHOJiorHHCCKoro ajian,nnja<})THoro pa3Hoo6pa3Ha. oco6eHHo B 4>opMe THnoBbix npoeKTOB c yqexoMMecrnocTH. H viep no yKpenJieHHio opraHH3auHoHHOH HHC^pacxpyicxypbi.cnocoGcxByiomHX aocxïDKeHHio peajibHbix npaKXHHecKHx pe3yjibTaTOB.

O COCTOHHHH OKPY>KAI0mEH CPEflbl B EBPOnE

15. Mbi ofloÖpfleM OTRÜT o xo#e no/jroxoBKH JloKJia/xa o COCTOHHHH OKpyacaiomeocpe/ibi B Eßponc. 3 rox HoKJiafl 6ynex pacnpocrpaHeH cpcnn npaBHXeJibcXB CTpaHB Koiiije 1993 rozia H Gyjiej nonoacen B ocHOBy nanhue&meü pa3pa6oTKHEBponcficKoft BKuJiornnecKofi nporpaMMbi (E3FI). 3 T O T floKJiaa ÖyzieTpaccMorpeH Ha Harueft cjie;jyioi.nefl KoHtêpeHUHH MHHHCTPOB.

EBPOÜEHCKA^ 3KOJlOrWHECKAH OPOrPAMMA

16. Mbi ofloGpaeM aoKJiaa CTapuiHx COBCTHHKOB npaBHTeubCTB crpaH-HJieHOBE3K no npoGneMaM oKpy^caHDiiiefi cpe^bi H Bo;iHbix pecypcoB HaTeMy;"3jieMeHTbi ÄJIH floJirocpo^Hoö EßponeöcKoft 3KOJiorHqecKofi nporpaMMbi(E3n)".

17. Mbi npH3biBaeM npnaaTb EßponeöcKOMy areHTCTBy no oKpy^caiomeO cpeêcTaTyc o6meeBponeftcKoro ynpe>KfleHH5i. KOTopoe 6yaeT KoopflHHHpoBaTbfleaTejibHocTb no c6opy H aHanH3y aaHHbix, nocKo^bKy 3io HCO6XO/IHMO, noBO3MOÎKHOCTH B KpaTMaöuiHe cpOKH nocjie ero o^HunajibHoro

Coo6mecTBaMH.

18. Mbi He lojibKo BHOBb noflTBepîKflaeM Hamy npHBep^ceHHocxb npHHiinny"3arpH3HHxejib nuaxHx". 3aKpenneHHOMy B IlpHHUHne 16 fleKJiapauHH,npHHflxoö B Pno-ae-DKaHefipo. HO H npH3HaeM. HTO ocoöoe nojioêHHe cxpaHUeHxpanbHoft H Bocxo^Hoft Eßponbi B xeêHne HX nepexoaa K pbiHO^Hofl3KOHOMHKe flOJIJKHO npHHHMaXbCfl BO BHHMaHHe npH COÖJlIOZieHHH 3XOrOnpHHUHna. Mbi npH3biBaeM npHnaraxb Gonbiiie ycHJiHH K pa3pa6oxKe HHcnojib3OBaHHK) HosaTopcKHX HHCTpyMeHTOB noJiHTHKH mm peryjiHpoBaHHflnpMpoflonoub3OBaHHfl, BKJUoâa TexHoreHHbie 3KO7iorHMecKHe Kaxacxpo4>bi.KoHKpexHo:

18.1. Mbi npH3biBaeM O 3 C P B coxpyflHHHecxBe c OOH/E3Knyxeö H cpezicxB ana cojieftcxBHa 6ojiee niHpoKOMy ncnojib3OBaHHK)3K0HOMHqecKHx H HajioroBbix MexaiîH3MOB B Espone. a TaioKe BbipaooxaxbKOHKpexHbie peKOMeHAauHH no flocxHJKeHHio 3xofi

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c ynexoM noxoKa (J)HHaHcoBbix cpeacxB B cxpaHb] UcnxpajibHoft H BOCXOHHOÄ

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c uejibK) oGecneHCHHH 34>4>eKTHBHofi pa6oTbi. Mbi BbicoKO oueHHBaeM Te iiiarH.

KoTopbie y^Ke npeflnpnHHTbi B 3TOÄ CBH3H. H npH3biBacM K npHHMTHio. no

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npOMbIIIIJieHHO-pa3BHTbIX CTpaHaX. C yneTOM KOHKpeTHblX ycJIOBHfi H nOJIHTHKH B

cTpaHax. flenerauHH eBponeficKHX cipaH HacTOHTejibHo npH3biBaKH K

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cncieM.

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22. Mbi npH3biBaeM K aKTHBH3amiH coBMecTHbix ycHJiHft B uenax3(|)(|)CK1 HBHOCIH iiefiCTBHH CpeflCTB H MCXaHH3MOB flJIH MOHHTOpHHra,co6jiK)fleHH5i H oGecneqeHHfl BbinojiHeHHa HopM npaBa OKpyjKaiorueö cpe^H H3KOJlOrHHCCKOft IIOJ1HTHKH. B HaCTHOCTH".

22.1. nporpaMMa noaroTOBKH o63opoB npnpoflooxpaHHofi aeaTejibHOCTH nocTpanavi B per HOHe O3CP 6yaeT npoflon^caTb pa3BHBaxbca npH coTpyiiHHHecTBe cOOH/E3K H nocTeneHHo oxBaTHT cTpaHbi UeHTpajTbHOfi H BOCTOHHOÄ Eßponw,npw 3T0M B Hee nepBOHananbHo BoîtnyT TpH 3KcnepHMeHTanbHbix o63opa

. BojirapHH H Benapycn.

22.2. Mbi apH3UBaeM OOH/E3K Bbipa6oTaTb npcnnomeuusi no co3üaHHio npaBOBbix.peryjiHpyioinHX H aÄMHHHCTpaTHBHbix MexaHH3MOB B uejiax noompeHHa yiacTHH

B npouecce npHHHTHü peiueHHÖ no BonpocaM oxpaHbicpejibi. a TaKîKe no ocymecTBJieHHio BKOHOMHHCCKH 30(|)eKTHBHbix

Mep B uejiax cozieftcTBHfl ynacxHK) oömecTBeHHocTH H o6ecneqeHHa. BcoxpynnHHecTBe c Heo<J)HUHajibHbiMH cTpyKxypaMH. CHCTCM no/iroTOBKH H

o6pa3OBaHHH juia. noBbimeHHH OTOCOOHOCTH o6mecTBeHHocTHHH(J)opMauHH no oKpyîKaiomefi cpeae.

22.3.Mbi npH3biBaeM O3CP B coTpyflHHHecTBe c OOH/E3K. lOHEII He?KflyHapoflHbiMH opraiiH3auH«MH pa3pa6oTaTb. B

y>Ke HaHaToft B 3xofi oGjiacTH flearenbHOCTH. KOMnneKCHbiftK npeflOTBpameHHio 3arpa3neHHiî H 6opb6e c HHM.

23. Mbi oflo6paeM aoKJiazi : " MejKflyHapoflHbie npaBOBwe ÄOKyMeHTbi" OT 2 anpena 1993ro/ia. npH3biBawmHft K 3(J)(])eKTHBHOMy MOHHTOpHHry. a Taioice K aKTHBHOMynpHMeHeHHK) H co6jiiofleHHK) nono?KeHHft Me^cziyHapoflHbix npaBOBbix noKyMeHTOB Bo6jiacxH oxpaHbi oKpy^caiomeft cpezibi.

23.1.Mbi HacToaTCJibHO npH3biBaeM ôroBapHBaiomHeca CTOpoiibi npHpoflooxpaHHbixKOHBeHUHfi B perHOHe OOH/E3K. coTpyziHHHaTb. rae 3To HeoGxo^HMo, B paMKaxCOOTBCTCTByiOUIHX pyKOBOflHlUHX OpraHOB 3THX KOHBeHUHH B UCiaX pa3pa6oTKHpeHCHMOB KOHTpOJIH 3a Co6jIK>fleHHCM, KOTOpble:

CJIO>KHOCTH:

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- ocTaBJiHK>T npHHHTHe pemeHHtt Ha ycMOxpemie jiorOBapHBaioiunxcH cxopoH;

- ocTaBJisriOT npnuarue pemcHHÖ. KacaioiuHxcs onpcaeiicHHfl BO3MO>KHbix

nOTpeÖHOCTefi B XeXHHHCCKOM H (f)HHaHCOBOM COJieHCTBHH B paMKaX KOHKpeTHblX

corjiauieHHß. Ha ycMOTpeHHe noroBapHBaKnuHxca cxopoH:

- BKJiK>HaK)T TpancnapeHTHbie H neiKne cHcreMbi M npoucnypbi OTHCTHOCTH.

corJiacoBaHHbie

23.2.Mbi Hacro»TejibHo npH3biBaeM jaoroBapHBaioiuHeca cTOpoHbi npHpo;iooxpaHHbix

KOHBeHUHft B pcrHoHe OOH/E3K corpyflHHnaTb B paMKax cooTBercTByiomHX

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- noBbimeHHK) ypoBHH ocBejioMJieHHocTH o HCJJHX H o6a3aTCJibcrBax.

ripcaycMaTpHBaeMbix apHpoflooxpanHbiMH KOHBeimHHMH. B perHOHe OOH/E3K:

- COflefiCTBHK) npaBHXeJIbCTBaM B CO3flaHHH HeOÔXOJIHMblX aflMHHHCTpaTHBHblX H

npaBOBblX CTpyKTyp. BK IK)HaH MexaHH3MbI C06jlK)fleHH5I H OCymeCTBJieHHH. B

. nyieM HaqanbHoft HJIH flajibHeftiueö pa3pa6oTKH pyKOBOflHUinx

cofleficTBHH. npH HeoGxo/jHMocTH. pa3paf)OTKe 3aKOHoaaTeJibCTBa. a

o6MeHa ropncTaMH H TexHHHecKHMH 3KcnepTaMH;

- o6ecneqeHHK) peryjisipHoro yqacTHJi B pa6oTe coBemaHHft npeiiCTaBHTenefi CTpaH.

HaxoiiHuiHXCH Ha nepexozmoM sxane;

- iipeaocTaBJîeHHK) Bcefi cooTBeTCTByioineö HHôpManHH 06 ocymecTBjieHHH Ha.noGpoBOJibHbix Hananax.

24. Mbi npH3biBaeM Bee rocyâpcTBa-ineHbi O 0 H / E 3 K H EßponeficKoe CooGmecTBO

paccMOTpeTb Bonpoc o paTH^HKanHH npHpoaooxpaHHbix KOHBemiHH B perHOHe

0 0 H / E 3 K HJIH. npH HeOÖXOflHMOCTH. O UpHCOeAHHeHHH K HHM, no BO3MO5KHOCTH B

CpOKH.

nPOUECC "OKPy^CAïOmAH CPEflA flJ15I EBPOnbl"

25. Mbi r.iyGoKO npH3Hai enbHbi npaBHTejibCTBy Bojirapan 3a npenjio>KeHHe nposecTH

y ce6H B cipaHe H noaroTOBHTb namy cne^yiomyio KoH<|)epeHnnK) Ha ypoBHe

MHHHCTpOB B 1995 TO/iy. ITpaBHTeJlbCTBa 3a«BHJlH O TOM. HTO OHH

Heo6xonHMyio noaêpacKy npaBHTejibCTBy BojirapHH.

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cocxaBa.

IloBecTKa flHfl namero cne^yiomero coBemaHHa 6y/iex BKJitonaxb: 0630p

ocymecTBjieHHH üporpaMMbi fleHcxBHfi no oxpane OKpy>Kaiomeft cpc^bi.

npHpoaoc6eperaK>uiHe MeponpHHXHa; H naJibHefiniyio pa3pa6oxxy EßponeficKoft

3KOJiorHHecKofi nporpaMMbi KaK nyTeM o63opa pe3y;ibxaxoB paôorbi no

nepBOHaHajibHbiM 3.neMeHTaM. TaK H nyTeM aKXHBH3auHH Hamero coxpynHHHecxBa

B apyrnx o6jiacTHx. xaKHX KaK xpaHcnopx H oKpyjKaroiiiafl epeaa. rpaHcrpaHHHHoc

3arpH3HeHHe BO3ir)'xa H Bo;ibi M^H Hace.ieHHbie nyHKxw.

26. CTapiiiHe COBCXHHKH npaBHxeJibcxB cxpan-w.neHOB E3K no npo6;icMaM

OKpy>KapoLneft epeabi H BOJIHHX pecypcoB ynpe/wx cneiiHajibiryio

rpynny. cocroamyK) H3 Bbicuinx JIOJIHCHOCXHHX JIHU. K ynacxmo B ee paGoxe6yjiyx npHrJianieHbi npcacxaBHxejiH KOMHCCHH EßpoueöcKHX cooGmecxB,

opiaHH3auHfl H (JjHuancoBbix ynpOKneHHÖ. lOHEÜ HHcnpaBHTejTbCTBCHiïbix cTpyKTyp. aeöcTByioinHx B pernoHe

OOH/E3K.

3 i a paôonajj rpyniia Gyziex flBJiHXbcs neHxpajibHbiM opraHOM no KoopßHHamrnaajibncfiuiero pa3BHXHH npouecca "OKpy>KaK)inaa cpejia win Eßponbi". OHa Gyzier

3a BbinojiHeHHeM peuieHHH H peKOMeHâmiö JlwiiepHCKoâH ocHOBHoö noflroTOBKott K iiameft cjie^yiomefi KoHêpeHUHH Ha

ypoBHe MHHHcrpoB. B nacTHocTH. OHa 6yaeT npHHHMaTb Mepw no aajibHefiuieftpa3pa6oiKC EßponeöcKoft 3KOJiorHqecKoft iiporpaMMbi na ocHOBe JXoKnajxa ococTüHnHH oKpy^caK^mefi cpenbi, KOTopbifi TIOUJKCH 6bixb onyÔJiHKOBaH ao KOHIW

1993 ro;ui.

27. y^poKaeHHaa MHHHCTpaMH uejießaa rpynna. paGoTy KOTopofi BO3rjnaBïiTKOMHCCHS EßponeficKHx CooômecTB COBMCCTHO C o^HojEi H3 CTpaHIJeHTpajibHofi H BocTORHoft Eßponbi Ha poxanBOHHOÄ OCHOBC a paöoxyceKpexapHaxa oôecne^HX O3CP. npH aKXHBHOM ynacxHH BceMHpHoro 6aHKa HEBPP H ynacXHH npaBHxeubcxB 3aHHxepecoBaHHbix cxpan H JipyraxMe>KflyHapoaHbix opraHH3aiiHtt H 4)HiïaHcoBbix yqpeacjieHHfi. oOJiernnxocymecxBJieHHe üporpaMMbi aeficxBHfi no oxpaHe oKpyjKaiomett cpe^bi ana.UeHxpajibHofi H BOCXOHHOH Eßponbi. CJie;iyex onpeflenHXb nyxiîHeo<J)HiiHajibHwx cxpyKxyp B 3XOX npoiiecc; O3CP TKC pa3pa6oxaexOXHOCHXeJIbHO COOXBeXCXByiOmHX MexaHH3MOB. BKJlîOMaa MexaHH3MbI

OXHeXHOCXH.

UeneBaa rpynna. ocymecxBJiaH opraHH3aijHOHHbie H nporpaMMHbie6ynex nofluepJKHBaxb CBH3b c KoMHxexoM no no^roxoBKe npoexxoB no Bonpocyo KaiiHxajioBnoîKeHiiHX. KoopflHHHpyeMbix nepe3 cxpyxTypy no noaroxoBKenpoeKxoB. IJejieBaa rpynna Gyziex coaeficxBOBaxb noziflcp»;Ke. OKa3biBaeMofio6meHanHOHajibHbjM H MecxnbiM opraHaM no nojiroroBKe npoeKXOB H

28. CoBex EBponbi B coxpyaHHMecTBe c MCOFI HMe?KnyHapoz[HbiMH. npaBHxeubcxBeHHbiMH H HenpaBHxejibcxBeHHbiMH

cxpyKxypaMH. c»6ecneHHx npoaonMceHHe npoueccoB ocymecxBJienHfl.

H KOppeKXHpOBKH ÜO3OpOB B oGjiaCXH OXpaHbl npHpOflbl.

29. floKJiaflbi o xofle paöoxbi B pavncax 3XHX H apyrnx cooTBexcxBytomHXnojiroxoBHxejibHbix MeponpHaxnfi 6yjiyx npezicxaBJieHbi KoH(|)epeHUHH na ypoBHe

qcpe3 cneuHajibHyK) pa6oqyio rpynny BHCIUHX AOJiJKHOcxubix JIHU,

) B KanecxBe nem pajibHoro Koop/iHHHpyiomero opraHa. o KOXopoMynoMHnaexca B nyHKxe 26.

10

Programme d'action pour Penviroanemenî de l'Europe Centrale et Orientale : Résumé

PROGRAMME D'ACTION POUR L'ENVIRONNEMENTDE L'EUROPE CENTRALE ET ORIENTALE

RESUME EXECUTIF

INTRODUCTION

Le Programme d'action pour l'Environnement a été conçu en réponse à un appel desministres de l'Est et de l'Ouest lors de leur conférence de 1991 et dans l'esprit de la CNUED. Endépit des efforts déployés par les pays d'Europe Centrale et Orientale pour tenter de résoudreles problèmes d'environnement, parfois avec une aide internationale, ü reste encore un certainnombre de problèmes graves qui appellent une action immédiate et urgente.

Le présent Résumé exécutif donne une vue d'ensemble du Programme d'action et décritles principales caractéristiques de la stratégie globale et du cadre d'action que constitue ceProgramme. Cette stratégie repose sur trois piliers : la réforme politique, le renforcement desinstitutions et les investissements. Le Programme d'action illustre diverses actions possibles pourmettre en oeuvre cette stratégie. Il est principalement centré sur des actions immédiates et àcourt terme, mais en veillant à leur concordance avec les objectifs économiques, sociaux etenvironnementaux à long terme.

POURQUOI UN PROGRAMME D'ACTION POUR L'ENVIRONNEMENT ?

Les ressources actuellement disponibles pour améliorer l'environnement des paysd'Europe Centrale et Orientale, y compris de l'ex-Union Soviétique, seront sérieusement limitéesdans les 5-10 prochaines années. Le prix à payer pour atteindre certains objectifs de protectionde l'environnement sera très élevé. Le Programme d'action pour l'Environnement propose uncadre et des indications pour déterminer les problèmes les plus urgents et trouver des solutionsréalistes, efficaces et rentables. Il est destiné à aider les pays d'Europe Centrale et Orientaled'une part à définir leurs propres priorités nationales en matière d'environnement, et d'autre partà développer et promouvoir la coopération entre pays de l'Est et pays de l'Ouest.

Les principaux obstacles à la mise en oeuvre de ce programme sont la pénurie généralede moyens financiers mais surtout institutionnels, plutôt que des questions spécifiques à certainsproblèmes d'environnement ou solutions possibles. Par conséquent, les problèmes les plusurgents ne pourront être résolus que si l'on définit dès le départ des objectifs clairs ainsi que lemoyen le plus efficace pour atteindre chaque objectif. Cette évaluation des priorités, des risqueset des avantages est un préalable essentiel à toute stratégie de développement durable, quipermet de définir les investissements et les politiques par rapport à un objectif socialement etécologiquement sérieux et d'éviter les coûteux remèdes ex post

Dans certains cas, les améliorations les plus notables de l'environnement seront obtenuespar des politiques et investissements dits "à double avantage" qui peuvent être justifiéesuniquement par des motifs économiques mais ont des implications positives substantielles sur

Programme (faction pour fa™« "nnwit de l'Europe Centrale et Orientate : Résumé 2

l'environnement. L'amélioration de l'efficacité énergétique ou du rendement d'autres ressourcesen est un bon exemple.

PROBLEMES D'ENVIRONNEMENT MAJEURS - CRITERES DE DEFINITION DES PRIORITES

Les priorités définies doivent traduire l'urgence et l'importance des problèmesd'environnement. Définir des priorités en matière d'environnement implique des choix difficiles.

Les atteintes à la santé humaine dues à la mauvaise qualité de l'environnement sont unepréoccupation majeure dans cette région, comme ce fut le cas à l'Ouest, quand on a commencéà s'intéresser aux menaces majeures pour la santé présentées par l'environnement Les premièresconstatations montrent que les types de pollution qui suivent ont eu des conséquences néfastessur la santé humaine (et aussi sur l'économie) dans certaines régions d'Europe Centrale etOrientale :

présence dans l'air et le sol de plomb rejeté par les fonderies de plomb et de zincainsi que par les moyens de transport ;

présence dans l'air de poussières rejetées par les poêles ménagers, les petitesentreprises, les centrales électriques et les installations de chauffage, les usinesmétallurgiques et autres grosses usines ;

présence de dioxyde de soufre et autres gaz, notamment associés aux poussières.

Les autres atteintes notables à la santé ont pour origine :

la présence dans l'eau de nitrates provenant de parcelles d'élevage etd'exploitations agricoles mal entretenues/conçues, de l'usage inconsidéréd'engrais et des fosses septiques en milieu rural ;

la présence de polluants dans les aliments et l'eau, notamment de métaux lourdsou de produits chimiques toxiques qui sont une menace pour les réserves d'eaupotable, soit directement, soit du fait de l'élimination dans de mauvaisesconditions de déchets dangereux/nucléaires.

Mais la santé humaine n'est pas le seul critère à prendre en compte pour définir lespriorités. Dans certaines régions, d'autres facteurs jouent un rôle majeur, notamment :

les pertes de productivité résultant de l'endommagement des équipements deproduction et des ressources naturelles, voire de leur destruction ;

la détérioration ou les risques d'atteintes irréversibles à la biodiversité en généralet aux zones humides (lacs, réservoirs, rivières), prairies, écosystèmes côtiers,lacs, forêts et habitats de montagne en particulier.

Enfin, les priorités doivent aussi être liées à la rentabilité des mesures destinées àrésoudre des questions d'importance croissante à moyen et long termes où un temps très longpeut être nécessaire pour obtenir des changements (par exemple les moyens de transport).

Chaque pays d'Europe Centrale et Orientale doit décider quelle sera la meilleure façond'utiliser les ressources pour régler les problèmes qu'il considère comme prioritaires, en neperdant pas de vue que les problèmes ci-dessus ont été reconnus comme les plus préoccupantsen Europe Centrale et Orientale.

cTactkm pour P«"»îimni«fmiir de l'Europe Centrale et Orientale : Résumé

La rareté des ressources ne signifie pas simplement qu'il faut réduire les investissementsdans le domaine de l'environnement. Il faut au contraire profiter des avantages offerts par lespolitiques économiques de grande envergure et trouver le juste équilibre entre technologies,gestion, institutions et politique. Il faut notamment se demander dans quelle proportionl'environnement peut être amélioré en fonction du prix à payer. La réponse à cette questionpermettra la souplesse nécessaire pour obtenir des résultats optimum avec les ressourcesdisponibles.

Pour définir les priorités, une combinaison des mesures complémentaires suivantes estnécessaire :

de meilleures politiques économiques et environnementales ;

des dépenses ciblées avec discernement sur des projets à rentabilité élevée ;

le développement des institutions, notamment des programmes de formation,d'éducation et d'échanges.

Ces mesures sont détaillées dans les paragraphes qui suivent

REFORMES POLITIQUES

Economies politiques. Le passage de la planification centrale à une économie de marchéne doit pas seulement permettre une progression des performances économiques des pays à longterme, mais aussi contribuer à améliorer l'environnement en pénalisant le gaspillage massif desressources - et la pollution qui en résulte - caractéristiques de la production dans le passé. Parmiles mesures-clés susceptibles d'apporter des améliorations économiques et environnementales,figurent les restrictions sur l'accès des entreprises aux fonds de l'Etat ("contraintes budgétairessévères") et la suppression des subventions sur les ressources naturelles telles l'énergie, lesminerais ou l'eau. De nombreux pays d'Europe Centrale et Orientale ont déjà fait de grands pasvers la réduction des subventions sur l'énergie. Ces efforts devront être, et sont poursuivis.

Le déclin de l'activité économique s'est traduit par des réductions substantielles desémissions. Les réformes économiques doivent soutenir ou étendre ce processus pendant les dixannées à venir, en encourageant les activités et technologies plus propres et plus économes enressources naturelles. Grâce au renouvellement progressif des équipements de production, lesémissions de la plupart des polluants atmosphériques, à l'exception de celles qui proviennentdes véhicules, pourront être stabilisées, voire réduites, jusqu'en 2010, même avec une croissanceéconomique relativement rapide. Les rejets de polluants dans l'eau seront par contre moinsconcernées par la restructuration industrielle, du fait de la contribution dominante del'agriculture, des ménages et des services, de telle sorte qu'à long terme, ce n'est plus l'air maisl'eau qui retiendra principalement l'attention.

Dans certains cas, il pourra être opportun de prévoir des incitations pour amener lesecteur privé, en particulier des entreprises qui sont les plus à même de réduire les principalesmenaces qui pèsent sur la santé humaine ou les écosystèmes naturels, à investir dansl'environnement. Mais les investissements effectués dans le secteur industriel et énergétiquedoivent tenir compte des objectifs d'organisation et de politique du moindre coût, ainsi que desprocessus de prise de décisions du secteur privé. D'une manière générale, la prise en compte desexigences liées à l'environnement au stade de l'élaboration des politiques sectorielles, est unfacteur-clé en matière d'amélioration de l'environnement.

Programme d'action pour Yannaananait de l'Europe Centrale et Orêniale : Résumé 4

Des politiques d'environnement ciblées, alliant judicieusement règlements et instrumentséconomiques, seront nécessaires pour recueillir la totalité des fruits potentiels de larestructuration économique. Par exemple, si la suppression des subventions sur les prix del'énergie entraîne une diminution de la consommation d'énergie et par conséquent de lapollution, des taxes sur la pollution pourraient compléter cette politique en encourageant lerecours à des combustibles et technologies plus propres.

Pour parvenir à l'utilisation la plus rentable possible des ressources, les pays d'EuropeCentrale et Orientale devraient, lorsque la situation le permet, avoir recours aux instrumentséconomiques. Les régimes actuels de taxes sur la pollution peuvent être élargis pour jouerpleinement leur rôle d'incitation réelle à adopter des pratiques respectueuses de l'environnement.Il est possible de réaliser des économies substantielles pour atteindre les objectifs de protectionde l'environnement par des mesures simples comme celles qui sont propres aux économies demarché, mais non moins réalistes même dans le contexte économique et institutionnel acrueLLes occasions de réconcilier politique environnementale et politique fiscale sont par ailleursconsidérables.

En matière de mesures réglementaires, par exemple pour lutter contre les émissions demétaux lourds et de produits chimiques toxiques, il conviendrait que les gouvernementsd'Europe Centrale et Orientale adoptent un cadre de normes et d'instructions comme celui quia été adopté au sein des Communautés européennes, ou un système par étapes équivalent,comme ceux qui sont en vigueur aux Etats-Unis, au Canada ou dans d'autres pays de l'OCDE.Beaucoup de normes reconnues au niveau international sont reconsidérées à la lumière del'expérience acquise, dans le but d'en améliorer l'efficacité. Le cadre de nonnes adopté par lespays d'Europe Centrale et Orientale devrait prévoir la mise en oeuvre progressive de limitesd'émission de plus en plus sévères qui se rapprocheraient, d'ici 10 à 20 ans, des normesreconnues à l'échelle internationale et en vigueur à ce moment là. Il faudrait fixer auxentreprises un délai précis pour se conformer aux nouvelles normes qui devront êtrerigoureusement respectées. Cest pourquoi, outre des instruments économiques et des mesuresréglementaires, il faudra mettre en place une structure de contrôle et un cadre institutionnelgarantissant leur mise en oeuvre effective.

Des normes relatives aux conditions ambiantes devraient être intégrées dans le cadre dedécisions afin de guider les choix politiques à l'échelle locale. Correctement définies, ces normessont l'expression de critères de durabilité environnementale et économique. Les efforts deplusieurs pays d'Europe Centrale et Orientale pour appliquer les normes de préservation de labiodiversité doivent être reconnus et développés.

Anciennes et nouvelles entreprises. Des conflits entre les considérations économiques,sociales et environnementales sont inévitables, en particulier quand les ressources disponiblespour atténuer les conséquences sociales ou environnementales sont si limitées. Certaines usinesanciennes très polluantes seront autorisées à poursuivre leurs activités en raison du prix socialélevé à payer si l'on devait les fermer. Mais même dans de tels cas, il est possible d'insister pourque ces entreprises fassent des efforts en faveur de l'environnement sans mettre en jeu desinvestissements considérables.

Des améliorations notables peuvent souvent être obtenues par de simples mesures"d'entretien courant" : meilleur entretien, réparation des fuites, meilleurs systèmes de régulation,adoption de normes plus sévères de gestion des usines et de la production. Ce sont là desactions "à double avantage" qui permettront d'améliorer les résultats économiques desentreprises en diminuant les atteintes à l'environnement dont elles sont la cause. Ces actions depetite envergure soutiennent les améliorations de l'environnement apportées par le changementde politique économique. Elles sont d'importances capitale car les technologies plus propres nepourront pas, dans leur majorité, être mises en oeuvre dans divers secteurs industriels, tant que

Programme (faction pour l'enviraimement de rEmope Centrale et Orientale : Résumé 5

de nouveaux marchés pour les différents produits n'auront pas été trouvés et la viabilitééconomique de certaines entreprises assurée.

Il est donc primordial que les gouvernements ne consacrent pas toutes leurs ressources -humaines et financières - à de nouveaux investissements ou entreprises puisque des progrès

considérables peuvent être faits en exerçant une pression sur les patrons d'entreprises anciennespour qu'ils procèdent à des amélioration continues, et en les récompensant convenablement siles progrès réalisés sont supérieurs à la moyenne. En fait, il est évident que l'amélioration desrésultats des entreprises anciennes toujours en activité, en termes de bénéfices pourl'environnement, constituera à court et moyen termes la principale contribution au déclinrégulier de l'ensemble des émissions. Par ailleurs, pour obtenir des conditions équivalentes àcelles qui prévalent en Europe Occidentale, il suffirait, pour enregistrer une améliorationimmédiate, de ramener, dans quelques-uns des "points chauds" les plus atteints et pour quelquespolluants seulement, les émissions par unité de production à un niveau équivalent à celui quel'on obtient en appliquant la meilleure technologie disponible (Best Available Technology, ouBAT).

Privatisation. Il faut que les ministères de l'environnement travaillent en liaison avec lesministères des finances, de l'industrie et de la privatisation, de même qu'avec les ministères dela santé et de la sécurité sociale, afin que les préoccupations relatives à l'environnement soientprises en compte lorsqu'il est question de fermer des usines ou des entreprises du secteur public,ou de les autoriser à poursuivre leurs activités. Cette possibilité pour les servicesd'environnement d'intervenir dans le processus de décision et de définition des conditions àremplir pour que les usines bénéficient d'une aide leur permettant de poursuivre leurs activités,est l'occasion d'avoir à peu de frais un impact important sur les dégâts causés par les vieillesusines.

La privatisation peut faciliter les changements favorisés par la réforme du marché. Lesgouvernements peuvent à la fois accélérer la privatisation et faciliter les progrès en matièred'environnement en définissant des règles claires permettant de dire qui est responsable desdégâts occasionnés dans le passé, et en rendant les nouveaux patrons d'entreprises responsablesde toutes les émissions actuelles. Dans de nombreux cas, le gouvernement doit être prêt àassumer la responsabilité des dégâts du passé, mais diverses façons de structurer cetteresponsabilité permettent de protéger à la fois le gouvernement et l'environnement. Des auditssur l'environnement - réalisables dans des délais relativement brefs - doivent être entrepris pourdifférencier la pollution passée de la pollution actuelle. Lorsque les entreprises privatisées sont"hors normes", il faut prévoir l'introduction progressive de nonnes d'émission plus strictes.

Le passage de la planification centrale à l'économie de marché peut avoir des effetsirréversibles sur la diversité considérable des êtres vivants et des paysages dans une partie del'Europe Centrale et Orientale. Les conventions et les accords internationaux existants pourraientsoutenir les efforts des pays d'Europe Centrale et Orientale pour définir des réseaux de régionsde grande valeur naturelle, élaborer une politique de protection et d'utilisation durable pendantla période de transition, et assurer une utilisation durable des terres privatisées en respectantl'environnement. Une aide à court terme pour des services de développement en agriculture etforesterie, législation et planification intégrée sont nécessaires pour éviter les formes dedéveloppement qu'a connues l'Europe de l'Ouest

Programme d'action pour l'envitouiieroent de l'Europe CentraJe et Orientale : Résumé 6

INVESTISSEMENTS IMMEDIATS PRIORITAIRES

A long terme, la réforme du marché, y compris la restructuration industrielle, associéeà des mesures appropriées dans le domaine de l'environnement, réglera une bonne partie desproblèmes d'émissions qui menacent la santé et l'économie dans la région. Ceci se produira àmesure que des emplois de substitution seront trouvés pour les travailleurs des entrepriseséconomiquement peu rentables et polluantes dont la fermeture s'impose, à mesure que l'activitééconomique redémarrera et que des entreprises viables pourront se permettre d'investir dans lesnouvelles technologies.

A court terme, cependant, des investissements publics doivent être assurés :

pour accélérer le processus d'amélioration de l'environnement en cas decontraintes sociales et économiques (entreprises très polluantes non fermées,ménages dans l'incapacité de faire face rapidement au renchérissement del'énergie et d'abandonner le charbon au profit de sources d'énergie pluspropres) ;

pour engager la lutte contre les problèmes d'environnement qui persisterontaprès le passage à une économie de marché (par exemple les émissionsatmosphériques provenant de sources mobiles).

De nouveaux investissements dans le domaine de l'environnement ne doivent être réalisésqu'après considération des trois catégories de dépenses indiquées ci-après : financement des fraisgénéraux d'exploitation et d'entretien (notamment au niveau municipal), dépenses favorablesà l'environnement qui peuvent se justifier sur un plan économique, et mise en placed'institutions.

Exploitation, maintenance, réparation et réhabilitation des services publics pourrenvironnement existants. Eau potable saine, collecte et élimination des orduresménagères, bon fonctionnement des transports publics, contrôle de l'éliminationdes déchets dangereux, toxiques et nucléaires sont autant de questions vitales.Elles exigent des financements pour couvrir les frais généraux mais ne devraientpas, à court terme, exiger de nouveaux investissements importants.

Investissements "à double avantage". Investissements modestes (souvent inférieursà 0,5 millions de dollars) pour conserver l'eau et l'énergie - contrôle de laconsommation, suppression des fuites -, mettre en place des technologies à faibleconsommation de matières premières et faible production de déchets, et surtoutassurer l'entretien courant des installations et apporter les améliorationsmineures susceptibles de réduire les déversements, les fuites et la consommationde matières premières. Ces investissements se justifient tous d'un point de vuestrictement économique et financier, mais offrent en plus des avantages majeurspour l'environnement.

Mise en place d'institutions. Les gouvernements doivent, à différents niveaux,consolider les bases financières et fiscales qui permettront de faire face aux fraisgénéraux ; les responsables industriels doivent être formés à de meilleuresméthodes de gestion ; il faut créer des institutions capables de prendre dansl'avenir des décisions éclairées sur les investissements nécessaires dans le cadred'un bassin hydrographique donné. Les efforts engagés pour promouvoirl'environnement dans l'éducation scolaire et soutenir les programmes deformation à l'intention des travailleurs doivent être poursuivis.

Programme «fanion pour l'environnement de l'Europe Centrale et Orientale : Resume 7

Investissements pour l'environnement. Une fois que ces mesures ont été définies, les prioritéspour les investissements intérieurs à court terme sont les suivantes :

Investissements immédiats pour régler les problèmes de santé les plus graves.Dans les régions où la qualité de l'air est la plus mauvaise, la limitation despoussières rejetées par les fonderies de métaux non ferreux (plomb, zinc, cuivre,aluminium) et les usines sidérurgiques, et l'utilisation de combustibles pluspropres et rentables dans les installations de chauffage urbain et domestiquedevraient être prioritaires. En ce qui concerne la qualité de l'eau, la prioritérevient au prétraitement des eaux usées industrielles où les métaux lourds ouproduits chimiques toxiques sont une menace pour la qualité des eauxsouterraines ou superficielles, ainsi qu'aux mesures visant à réduire dans leszones rurales la contamination des réserves d'eau potable par les nitrates et lesorganismes microscopiques. Pour ce qui concerne les déchets dangereux, lapremière chose à faire est de s'assurer que les sites d'élimination ne risquent pasde contaminer les sources d'eau souterraines ou superficielles par lessivage.

Mesures pour aborder les problèmes spécifiques à différents pays. Il s'agitnotamment du traitement des eaux usées pour protéger les ressources côtières,écologiques et touristiques, de l'achèvement progressif des usines de traitementdes eaux usées qui ne sont pas terminées, dans les cas où cela se justifie et oùl'impact sur la qualité de l'eau sera important, et de programmes destinés àprévenir les atteintes irréversibles à d'importants écosystèmes et les pertes deproductivité correspondantes, à l'échelle nationale et au-delà des frontières.

Soutien pour renforcer et accélérer les investissements des entreprises en faveurde l'environnement Ha-ns le cadre des politiques d'environnement, par exemplepour réduire et traiter l'eau sahne et autres rejets des mines, traiter les eauxusées industrielles dans les usines de pâte à papier, les usines textiles,métallurgiques et de produits chimiques, et pour réduire les rejets par les usinesde produits chimiques et pétrochimiques de matières toxiques.

Mesures à coût réduit pour faire face aux priorités à long terme relatives àl'environnement, lorsqu'une action rapide peut permettre d'éviter des dépensesqui risqueraient d'être beaucoup plus importantes dans l'avenir. Une meilleuregestion des moyens de transport, la suppression de l'essence au plomb et laréduction des émissions provenant des véhicules, la formulation et la mise enapplication de pratiques permettant des activités agricoles et touristiquesdurables, le financement de la recherche appliquée sur la protection des espèceset écosystèmes menacés, ainsi que la mise au point de systèmes de collecte,d'interprétation et de diffusion de données sur l'environnement, entrent tousdans cette catégorie.

PREOCCUPATIONS REGIONALES ET MONDIALES

Toute stratégie visant à résoudre les problèmes régionaux ou mondiaux de pollution del'air et de l'eau, doit reposer sur le fait que les effets locaux et transfrontières des mesuresdestinées à réduire les émissions se chevauchent.

Pollution de l'air. Des réformes du marché et des politiques ou investissements cibléspour atteindre les buts fixés en matière d'environnement au niveau national, permettrontd'importantes réduction des émissions de polluants atmosphériques à l'échelle régionale etmondiale. Pour permettre aux pays d'Europe Centrale et Orientale de répondre auxpréoccupations régionales et mondiales, les donateurs peuvent souhaiter contribuer à des

Programme d'action poor renvirannemenf de FEmope Centrale et Orientale : Résumé 8

mesures accélérant le processus de réduction des émissions. Cela pourra être l'occasion d'accordscomportant des avantages mutuels susceptibles d'entraîner des réductions plus importantes desatteintes à l'environnement que ne le permettraient les mêmes dépenses de ressourcesnationales.

Pollution de Feau. Optimiser les avantages à la fois intérieurs et transfrontières d'unemeilleure qualité de l'eau signifie mobiliser des ressources pour réduire le flux de nutriments etles émissions de substances nocives d'origine agricole, domestique et industrielle (y compris lesdécharges pour déchets radioactif) et diminuer de ce fait la quantité globale de polluants dansles zones côtières et estuariennes. Le Programme d'action pour l'environnement de la merBaltique est dans une large mesure le reflet d'une telle philosophie. (Sur le plan national, lesinvestissements destinés à l'assainissement des eaux usées doivent se concentrer sur les régionsen amont).

Les pays d'Europe Centrale et Orientale se sont engagés à lutter contre l'acidification, leréchauffement général de la planète, la diminution de la couche d'ozone et d'autres problèmesd'environnement à l'échelle de la planète dans le cadre de conventions et protocoles (régionauxet) mondiaux, et d'autres formes d'accords internationaux. Si ces engagements vont bien au-delàdes limites du Programme d'action pour l'Environnement, les pays d'Europe Centrale et Orientaledevraient, dans le cadre de leurs réformes politiques et institutionnelles et au titre desprogrammes d'investissement du PAE, prendre des mesures spécifiques de portée plus grande quecelles qui seraient nécessaires dans le cadre de la seule transformation économique.

Pour ce qui concerne l'élimination des substances destructrices de la couche d'ozone(SDO), ils devraient par exemple concentrer leurs efforts sur le secteur des aérosols et desmousses souples où les SDO sont faciles à éliminer à un faible coût, et élaborer des stratégiesnationales de récupération/assainissement/recyclage. Ils devraient réviser leurs législationsnationales et renforcer les moyens et mesures institutionnels et techniques en place à la lumièrepar exemple de la Convention sur la diversité biologique et de la Convention de Bâle.

PREALABLES INSTITUTIONNELS AU SOUTIEN DE TOUTE POLITIQUE ET DE TOUTINVESTISSEMENT

L'expérience a montré dans les pays occidentaux que pour réussir, toute politiqued'environnement exige l'engagement explicite de l'ensemble du gouvernement, la coopérationdes secteurs indépendants et un esprit d'ouverture pour définir les priorités et faire des choix.L'enthousiasme et la compétence d'organisations non-gouvernementales seraient une aideprécieuse pour mener à bien la mise en oeuvre des programmes de protection del'environnement, en particulier par le biais d'un suivi régulier.

Le renforcement des institutions locales et régionales de chaque pays, en particulier enles dotant de moyens indispensables pour établir les priorités, élaborer des politiques, contrôlerle respect des nonnes de protection de l'environnement et exploiter les systèmes financiers, seraprobablement la clé d'une meilleure gestion de l'environnement. Les responsables nationaux del'environnement devraient insister sur la nécessité de coordonner les politiques et créer deséquipes spécialisées chargées de travailler sur les problèmes prioritaires. Des économiesimportantes sont possibles en prenant des décisions au niveau des bassins hydrographiques ouatmosphériques, mais pour cela il faut des institutions capables de prendre en compte lesdifférents intérêts locaux et sectoriels.

Les études sur la préparation des projets et le contrôle industriel doivent être repensées.Elles doivent être centrées en priorité sur les domaines où des ressources limitées peuventapporter un maximum d'avantages, plutôt que de proposer des solutions toutes faites basées surdes technologies occidentales. En particulier, ü faudrait consacrer plus d'efforts à la définition

PingreiriTw d'action pour renvirumrerant de l'Europe Centrale et Orientale : ftésmné 9

des projets qu'à la préparation des projets. Une participation locale importante est essentiellepour formuler des conseils qui soient applicables et pour obtenir de meilleurs résultats en termesd'environnement à partir des services existants. Ces changements d'attitude exigeront que lesétudes accordent une plus grande attention aux conditions à respecter pour que les propositionsformulées dans ce cadre tendent vers des objectifs clairement définis et tiennent compte descontraintes financières et institutionnelles.

MISE EN OEUVRE

Le Programme d'action crée un partenariat entre les pays de l'Est et ceux de l'Ouest Siles pays d'Europe Centrale et Orientale sont responsables des projets, des politiques et del'amélioration des institutions, les gouvernements occidentaux et les institutions internationalespeuvent apporter leur aide technique pour soutenir les réformes politiques et institutionnelleset participer à la mise en oeuvre des projets prioritaires. Les différents partenaires doiventréexaminer leurs politiques et programmes à la lumière du Programme d'action. Lesgouvernements, pas seulement les ministères, doivent apporter un soutien actif à ce processus.Des groupes d'action interministériels pourront s'avérer à cet égard très utiles.

L'une des principales difficultés que pose la mise en oeuvre du Programme d'action estde trouver le moyen le plus efficace pour canaliser les ressources financières vers les activitésde petite envergure réalisables à court terme, d'en assurer la mise en place et de définir desprojets viables de plus grande envergure. Cette politique comporte trois volets.

1. Un processus permettant de déterminer les actions prioritaires en établissant un lienentre les menaces que font peser les polluants sur les populations ou les écosystèmes, et lesstratégies d'atténuation et leur coût. Les programmes nationaux pour l'environnement devrontdéfinir les problèmes, leur impact et des stratégies de substitution se traduisant par des actionspolitiques, institutionnelles et financières dans les zones où l'urgence des investissements enfaveur de l'environnement est évidente. Les calculs et analyses que cela exige ne sont pas facileset les relations entre sources de pollution et dégâts causés à l'environnement sont rarementsimples. Mais pour entreprendre telle ou telle action en faveur de l'environnement, dessuppositions implicites sont inévitables.

2. Un mécanisme garantissant la définition et la mise en oeuvre rapides des actionsne nécessitant que des investissements modestes pour des améliorations substantielles del'environnement Certains pays d'Europe Centrale et Orientale ont déjà lancé des programmesd'examen rapide de l'environnement ou des audits dans divers secteurs. Ces initiativesconstituent une étape essentielle dans la formulation de recommandations sur les améliorationspossibles à faible coût. Les petites dépenses pourraient être financées par un fonds national deréduction de la pollution. Des organismes extérieurs pourraient apporter leur contribution à cefonds qui proposerait des financements sous forme de prêts à des taux d'intérêt normaux. Desdons pourraient être accordés en supplément lorsque des investissements "à double avantage"ne suffisent pas pour remédier aux problèmes les plus urgents. Là encore, certains pays ont déjàcommencé à mettre ces idées en pratique.

3. Un cadre pour financer les investissements plus importants (en règle générale pardes prêts) qui mettent l'accent sur les possibilités "à double avantage' mais peuvent êtreassociés à des financement publics pour atteindre les objectifs les plus urgents qui nepeuvent être justifiés exclusivement par des motifs économiques. Des investissements plusimportants exigent naturellement de procéder par projets, avec études de faisabilité et autresdépenses préliminaires. Toutefois, pour être valables, les études de faisabilité doivent envisagerdes stratégies de substitution et des investissements progressifs.

Programme d'action pour r«aiviiuiuianent de FEtnope Centrale et Orientale : Résumé 10

RESUME DES PRINCIPALES RECOMMANDATIONS

Baser les priorités relatives à l'environnement sur une comparaison méticuleuse descoûts et des avantages. Au coure des 5-10 prochaines années, les ressources disponiblespour améliorer l'environnement seront sérieusement restreintes en Europe Centrale etOrientale. Il est essentiel qu'elles soient par conséquent réservées en priorité auxproblèmes les plus urgents.

Mettre en oeuvre des politiques et Investir dans des projets apportant des avantagesà la Ms en termes d'économie et d'environnement. Les politiques "à double avantage"sont par exemple la suppression des subventions qui favorisent une utilisation excessivedes combustibles fossiles et de l'eau dans l'industrie, l'agriculture et les ménages. Lesinvestissements "à double avantage" sont par exemple ceux qui permettent des économiesd'énergie et d'eau ou l'adoption de technologies à faible consommation de matièrespremières et faible production de déchets, et les dépenses d'entretien courant desinstallations industrielles.

Exploiter les forces du marché pour lutter contre la pollution partout où la possibilités'en présente. Des instruments spécifiques aux économies de marché, comme les taxessur la pollution, les taxes sur les carburants et les systèmes de remboursement de dépôtspeuvent contribuer à atteindre les niveaux de qualité de l'environnement recherchés àdes coûts nettement inférieurs à ceux des méthodes réglementaires traditionnelles. Desinstruments réglementaires seront cependant nécessaires pour limiter les émissions decertains micro-polluants comme les métaux lourds (notamment le plomb) et les produitschimiques toxiques.

Centrer l'action en priorité sur les problèmes locaux. Beaucoup de gens ont desproblèmes de santé liés à la présence de plomb dans l'air et le sol, de poussières et dedioxyde de soufre dans l'air, de nitrates dans l'eau potable et de polluants dans l'eau etles aliments. Cest en remédiant à ces problèmes que l'on obtiendra les meilleurs résultatsen termes de santé et de bien-être. Les mesures imposant une réduction des émissionsde polluants contribueront non seulement à régler des problèmes locaux mais aussi àréduire les émissions transfrontières et mondiales.

Les pays donateurs doivent envisager des possibilités de financement pour accélérerles mesures de réduction des émissions transfrontières et mondiales dans les paysd'Europe Centrale et Orientale. Ces financements seraient particulièrement opportunsdans les régions d'Europe Centrale et Orientale où une réduction des émissionsgénérerait les frais généraux les plus faibles. Réduire au minimum le coût net du respectdes accords internationaux est dans l'intérêt de chaque pays et de l'Europe en général.En réduisant le coût net d'une diminution des flux transfrontières, les pays auraient lesmoyens d'agir plus vite ou d'adopter des objectifs plus contraignants.

Clarifier la responsabilité des dégâts occasionnés dans le passé à l'environnementToute incertitude sur la responsabilité des dégâts occasionnés dans le passé peutdécourager les investissements étrangers et nationaux, et entraver le processus deprivatisation. Pour des raisons pratiques, les gouvernements devront supporter l'essentieldes frais exposés pour réparer les dégâts du passé. Les gouvernements doivent définirclairement les normes qui devront être respectées par les nouveaux industriels en matièred'environnement, ainsi que la période d'adaptation qui sera autorisée.

cTactioa pour renracooaesueat de FEwwpe Cewtede et Orientale : R&umé 11

ûétinif des normes réalistes et applicables, Mettre «ai place des normes plus strictes surune période de 10-20 ans et veiller à ce que les entreprises industrielles respectent lesnonnes provisoires.

Impliquer des acteurs locaux dans le processus de définition des priorités et de miseen 0GUW8 des solutions retenues. Ni les gouvernements, ni les organismes donateursné sont aptes à juger la façon dont la population locale évalue son environnement Unedémarche basée sur le principe de participation est primordiale pour la durabiiké à longterme des ameliorations de l'environnement.

Des travaux de recherche, des actions de formation et des èctianges d'informationsplus nombreux sont nécessaires pour aider les décideurs à définir des prioritésréalistes. La recherche doit être axée sur l'état de renvironnexaent en Europe Centraleet Orientale. H y a un besoin considérable d'infoniiations sur tes moyens peu coûteux deréduire les quantités de polluants rejetés dans l'air et dans l'eau par les fonderies demétaux ferreux et non ferreux, Jes aciéries, les usines de produits chimiques, les usinesde pâte à papier et 1&& stations de traitement dee eaux usées, et de préserver labiodiversité.

Trouver, mettre en oeuvre et financer des solutions exigera l'instauration departenariats. Une étroite collaboration entre l'Est et l'Ouest, entre pays d'EuropeOrientale et d'Europe Centrale et, à l'intérieur des pays» entre villes, organismes etentreprises, sera nécessaire pour assurer le transfert du savoir-faire et des tedmologïespropres,

Processus de préparation des projets. Des discussions ont été engagées sur lerenforcement du partenariat dans le cadre du Programme d'action, par un "Processus depréparation des projets". Ce processus fournirait ies fonds initialement nécessaires pour définirconformément au Programme d'action les investisse.menrs les plus urgents- en matièred'environnement, et pour amener rapidement ces propositions au stade où elles pourront êtrefinancées soit par des pays d'Europe Centrale et Orientale, soit par des voies bilatérales oumultilatérales. Dans ce conteste, un Comité de préparation de projets serait établi ainsi que, lecas échéant, des organes nationaux et locaux chargés de la préparation, et de la mise en. oeuvredes projets.

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