Background on Regional Policy
The development of a Regional Policy
by the EU arose from a need for economic and social harmonisation
among member states. In order to support the development of the
Regions within the EU, the Cohesion and Structural Funds were
set up to provide the member states with the financial resources
necessary for these structural interventions in their economies.
On the same conceptual lines, the pre-accession instruments were
created, this time directed towards applicant states.
Since their initiation in the 80s, these
funds have gained an infamous reputation through their history
as regards impacts on the environment. NGOs in member states
have shown a concern particularly due to the impact (more often
than not, negative) that the projects financed by these funds
have had on the environment. Due to the mere size of intervention
that they support, they have provided the means for the implementation
of projects that led, or would have led if not interrupted, to
massive disruptions of natural processes, landscapes and wildlife.
This was because originally environmental concerns were not inbuilt
into the methodology of the funds used. While the situation has
improved considerably, NGOs are still keeping a cautious eye
on the implementation of these projects and NGOs in applicant
states can learn from the experience of the past twenty years
and as watchdogs in the Enlargement Process, ensure that the
same mistakes are not repeated in our countries.
1. Past experience of NGOs from Member
States, leads the Maltese NGOs to OBSERVE that:
- Although the Regulations for the use
of these funds now cater for the appropriate combination of development
and environmental protection, in practice this is not always
so. Due to the subsidiarity principle, many issues are left up
to the judgement of Member / Applicant States, and there are
many examples of minimal interpretation of environmental clauses,
which have allowed for faster implementation of projects albeit
with an increased environmental cost.
- At the project level, the environmental
effects are examined by Environmental Impact Assessments (EIAs)
that are mandatory for most categories of projects as specified
by the EU legislation. NGOs in member states have complained
that EIAs have only looked at the immediate effects on the area
where the works took place, often failing to co examine the cumulative
or combined impacts of sub projects that were done as part of
an overall project. Furthermore, the EIAs were not completed
prior to the execution of the works and were not conducted by
an independent body. Their effectiveness is therefore limited
and would not lead to timely corrective action.
- The planning process is very often
done centrally, as the central ministries prepare the Operational
Programmes without seeking input at the local and regional level.
This has resulted in programmes that are not adapted to the needs
and specifications of each region, and which sometimes contrast
with the environmental character and carrying capacity of some
areas.
- The participation of environmental
authorities is restricted to their input for the Operational
Programmes that deal with the environment, while the overall
environmental performance of the Plan is not controlled. In addition,
the participation of NGOs in the planning process is very rare,
while at the implementation stage it is marginal thus leaving
valuable input unused.
- Finally, past experience has shown
that the provision of information to the public as regards the
plans and projects implemented under these funds has been in
many cases incomplete and single sided. This has limited the
possibility of civil society and NGOs to react in time to action
that may bear an increased environmental burden, with any corrective
action coming late and at a higher cost.
2. With regards to the situation in Accession
countries, the Maltese NGOs BELIEVE that most of the accession
countries do not have previous experience in designing large-scale
programmes. The NGOs observe that this has created various problems
in countries that acceded in previous enlargements mainly in
the absorption of such funds or the effectiveness of the actions
that were implemented. For these reasons, the Maltese NGOs augur
that the Maltese government will learn from these mistakes and
ensure that they are not repeated in Malta.
3. The Maltese NGOs propose that the
planning for the use of funds should follow these principles:
- Planning for the use of any funds given
to the Maltese government in this process should be holistic
and examine the economic growth created by the project as much
as the environmental and social effects of implementation.
- The first step should be the diagnosis
of the environmental problems of Malta under the appropriate
studies supported by the funds.
- The projects undertaken must come as
a result of the studies, taking into account future trends, and
the impacts (positive and negative) for their broad range of
influence in the framework of a strategic assessment.
- Projects must be planned with an objective
of creating maximum value for environmental protection out of
the support provided, rather than securing the maximum absorption
of funds for operational and macro economic reasons.
- The necessary institutions that will
be managing the funds and implementing the projects, must be
ready and in operation before the projects are approved. This
would avoid mismanagement that could lead to delays and to the
insufficient monitoring of the environmental dimension.
- In view of these observations, the
role that civil society and environmental NGOs have to play is
very important. Through timely interventions at the right level,
the NGOs can ensure that the environment of Malta would not be
sacrificed but will benefit in the process of EU accession.
4. The Maltese NGOs believe that they
can INFLUENCE this process in the following ways:
a. At a strategic level: this concerns
the process and the conditions agreed between the accession countries
and the Commission for providing support under the accession
packages and the plans proposed and approved for the use of the
funds.
- Communication channels should be established
between NGOs and the officials responsible for planning and implementation
of the projects. This would enable the NGOs to participate in
the process from the early stages.
- The NGOs should aim to agree with their
national authorities that they would be invited to review the
plans submitted to the Commission prior to their formulation.
A sufficient time period should be secured for studying these
plans and providing comments.
- NGOs can establish collaborations with
NGOs in other accession countries, since the problems they face
will be along the same lines. In this way, the burden of research
for information, training and expert opinion can be shared, achieving
substantial economies in time and resources. Furthermore a common
position by NGOs will have a greater impact both at a national
and EU level.
- Collaboration of the NGOs with the
press may help to create pressure to the government and raise
public support to reinforce the position of NGOs.
- NGOs can develop contacts with EU institutions
achieving information, expertise and capacity building.
- NGOs in accession countries can collaborate
with NGOs in member states, who have good contacts in Brussels.
Besides providing quick and valuable information, such collaborations
provide expertise and support in critical situations.
b. At a practical level: this is related
to the possibility for NGOs to participate in and/or influence
the implementation of the Funds.
- NGOs may propose projects that aim
at sustainable development in the framework of the Accession
agreements.
- NGOs could play a role by controlling
the environmental suitability and profile of projects that are
being executed, to ensure that a minimum of environmental safeguards
is being respected.
- In order to play a significant role
in this process, NGOs must ensure that they receive information
early enough to have margins to react and second that they have
a formal way of expressing their opinion. One way of doing so
is by getting involved as early as possible and by having a participation
in the Monitoring Committees set up.
- As a means of gaining support, NGOs
should establish partnerships with bodies that have an interest
in this process, like Unions, Social Groups, and Professional
bodies amongst others.
- As a last resort, NGOs could also seek
the support of the EU institutions by presenting complaints,
particularly through the Ombudsman and the European Parliament.
CONCLUSION
It is clear that Structural, Cohesion
and Pre Accession Funds, represent one the most direct forms
of intervention of the EU, as regards the economies of Member
States and now of accession countries. Besides their financial
importance, these funds are also a very important lever of influencing
the development process in their target countries. The effect
of these funds on the environment of the recipient countries
may be positive or negative, depending on the procedure followed
and the safeguards set to avoid development at the expense of
the environment.
In the case of the upcoming enlargement,
environmental NGOs should be in a position to produce considerable
benefits for the environment and should not miss this opportunity.
