Communication from the Commission to the Council and the European Parliament - Pan-European Environmental Co-operation after the 2003 Kiev Conference
Date: 2003-02-06
Institutions: European Commission
Subjects: Central Asia, Central and Eastern European countries, EU environmental policy, Western Balkans, accession to the European Union, environmental cooperation, environmental protection, the EU's international role

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 6.2.2003
COM(2003) 62 final

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE
EUROPEAN PARLIAMENT

Pan-European Environmental Co-operation

after the 2003 Kiev Conference

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE
EUROPEAN PARLIAMENT

PAN-EUROPEAN ENVIRONMENTAL CO-OPERATION

AFTER THE 2003 KIEV CONFERENCE

CONTENTS

1.

2.

3.

4.

5.

Introduction.................................................................................................................. 3

A summary of the "Environment for Europe" framework........................................... 4

The impact of the new political landscape in the future of the ‘Environment for
Europe ‘process............................................................................................................ 5

The goals of EU environmental cooperation within the wider Europe........................ 6

From goals to practice: Priorities for environmental co-operation with the European

neighbour countries...................................................................................................... 8

          5.1 The 13 EU candidate countries............................................................................................ 8

                 The group of 10 new EU member states in 2004 ................................................................... 8

                 Bulgaria and Romania............................................................................................................ 9

                 Turkey .................................................................................................................................... 9

5.2

5.3

5.4

The Western Balkan countries ..................................................................................... 10

The Western NIS and the Caucasus ............................................................................. 11

The NIS countries of Central Asia ............................................................................... 13

6.

Future co-operation of the Commission with the "Environment for Europe" process .... 13

6.1

6.2

6.3

Re-focus on the NIS ..................................................................................................... 13

The work on legal instruments ..................................................................................... 14

The role of the Regional Environment Centres............................................................ 15

7. Conclusions ...................................................................................................................... 15

2

1. 

Introduction

European co-operation to protect the environment and promote sustainable development has
expanded  enormously  over  the  past  three  decades.  The  initial  steps  were  taken  with  the
development of Community environmental legislation in the 1970s and early 1980s. The first
European-wide conventions1 and sub-regional initiatives such as the Oslo-Paris Conventions
for the North Sea also date from this time.

Since the mid-1980s the growth in co-operation has gathered pace, stimulated in particular by
three factors:

(cid:1)  The development of EU environment policy following the introduction of environment in
the  EU  Treaty  starting  with  the  Single  European  Act  of  1986  and  continuing  with  the
Maastricht  and  Amsterdam  Treaties;  and  the  adoption  of  successive  Commission
Environment Action Programmes (EAPs), most recently the 6th EAP (2001-10)

(cid:1)  The exposure  of major  environmental challenges  and  pressures  following  the  collapse  of
the socialist block in the countries of Central and Eastern Europe (CEE) and in the Newly
Independent  States  (NIS)2,  and  the  subsequent  opening  of  new  opportunities  for  joint
action

(cid:1)  The commitment to achieving sustainable development from the 1992 Rio World Summit
and  the  negotiation  of  global  conventions  such  as  the  conventions  on  the  ozone  layer,
climate change and biodiversity

From the early 1990s efforts have been made to bring this expanding interaction within a co-
ordinated and coherent approach to environmental co-operation at the pan-European level. In
1991  the  first  conference  of  European  Environment  Ministers  was  held  at  Dobris  Castle
(Czech  Republic)  with  the  objective  of  establishing  an  overall  political  framework  for
common  action  to  achieve  environmental  improvement  and  sustainable  development  in  the
European region, and to integrate environmental considerations into the emerging democratic,
market-based societies of CEE/NIS joining forces to tackle priority  environmental problems
in that region.

The  Dobris  Castle  Conference  established  the  "Environment  for  Europe"  process  to  meet
these  needs  and  its  mandate  was  reaffirmed  at  further  conferences  held  in  Lucerne  (1993),
Sofia  (1995)  and  Aarhus  (1998).  The  fifth  Conference  of  European  Environment  Ministers
will be held in Kiev on 21-23 May 2003.

The Kiev conference will take place against the background of profound changes in Europe
and emerging new challenges. Four particular factors stand out:

(cid:1)  The  enlargement  of  the  European  Union  from  12  member  states  in  1991  to  25  member
states on 1 May 2004 and the development of important bilateral partnerships between the
EU and its other neighbours in South-eastern Europe, the NIS and the Mediterranean basin.

1 

2 

Notably the long Range Transboundary Air Pollution Convention and Protocols of the United Nations
Economic Commission for Europe (UNECE)
This  group  of  countries  has  recently  expressed  their  wish  to  be  called:  ‘  the  countries  of  Eastern
Europe, Caucasus and Central Asia’ (EECCA countries)

3

                                                
These  developments  will  confirm  the  EU  as  the  principal  driving  force  promoting
environmental quality and sustainable development in the wider European region.

(cid:1)  The need to respond to concerns and challenges that have evolved in the decade between
the World Summits on Sustainable Development in Rio in 1992 and Johannesburg in 2002.
In  particular,  the  goals  of  the  Implementation  Plan  and  the  partnerships  agreed  in
Johannesburg will be of great importance here.

(cid:1)  Adherence to the  goals  of  the  Doha  Development  Agenda  and  in  particular  its  trade  and

environment dimension

(cid:1)  A  growing  recognition  of  the  need  to  streamline  proliferating  European  environmental
processes and improve pan-European environmental governance (i.a. inadequate legislative
base, weak institutional framework, poor implementation etc.); particularly, in view of the
limited resources, in terms of high-level political engagement, administrative support and
funding, available to sustain them.

This Communication sets out the views of the European Commission on how to pursue
environmental co-operation between the enlarged EU and its neighbours in the coming
years,  as  a  contribution  to  the  discussions  at  the  Kiev  Conference  on  the  future
development of such co-operation including the future of the ‘Environment for Europe’
process.

2. 

A summary of the "Environment for Europe" framework

The "Environment for Europe" process has two main roles: First, it provides the political pan-
European environmental framework for co-operation through the ministerial conferences co-
ordinated  by  the  UNECE3.  Reports  on  the  State  of  the  European  Environment  produced  by
the  European  Environment  Agency  play  a  key  role  in  assessing  progress  and  identifying
priority  issues.  The  next  (third)  such  report  will  be  produced  for  the  Kiev  Conference.  The
second  role  is  to  promote  environmental  improvement  in  CEE/NIS,  based  on  an
Environmental  Action  Programme  (EAP)  agreed  in  1993  and  endorsed  by  successive
ministerial conferences.

Main facilitators of the ‘Environment for Europe ‘process are:

–  The Task Force of the Environmental Action Programme (EAP Task Force) co-chaired by
the  European  Commission  and  an  Environment  Minister  of  the  NIS  region  (currently
Georgia). It aims to integrate environmental considerations into the processes of economic
and  political  reform  by  upgrading  institutional  and  human  capacities  for  environmental
management  and  through  encouraging  cost-effective  use  of  financial  resources.  In  1993,
Ministers  requested  the  Organisation  for  Economic  Cooperation  and  Development
(OECD), located in Paris, to serve as the secretariat.

–  The Project Preparation Committee (PPC), established in 1993 to mobilise environmental
investments in CEEC/NIS. It comprises the donors and IFIs and is currently chaired by the
UK  Department  for  International  Development.  Its  secretariat  is  located  in  the  European
Bank of Reconstruction and Development (EBRD) in London.

3 

United Nations Economic Commission for Europe (http://www.unece.org/)

4

                                                
–  The Regional Environment Centre (REC) for Central and Eastern Europe4, established in
1990 in Budapest by the European Commission, the USA and Hungary as a non-advocacy,
not-for-profit  organisation  with  a  mission  to  assist  in  solving  environmental  problems  in
Central and Eastern Europe (CEE). The Centre fulfils its mission through encouraging co-
operation among non-governmental organisations, governments and businesses, supporting
the  free  exchange  of  information  and  promoting  public  participation  in  environmental
decision-making. Since 1998 Regional Environment Centres have also been established in
Moldova, Ukraine, Caucasus, Central Asia and Russia with a similar mission.

At the last Ministerial Conference of the ‘Environment for Europe’ in Aarhus, in 1998, it was
agreed that, in the light of the impending enlargement of the European Union, the EAP Task
Force and PPC should reorient their work and focus more on the NIS and those CEE countries
not  included  in  the  pre-accession  process.  At  the  time,  the  REC  in  Budapest  took  over
secretariat  functions  of  the  EAP  Task  Force  for  CEE  countries  (including  the  five  Western
Balkan countries).

3. 

The impact of the new political landscape in the future of the ‘Environment for
Europe ‘process.

Since 1998 the political landscape around the “Environment for Europe” co-operation process
has changed considerably. Among these changes the forthcoming EU enlargement will have
by far the biggest impact on its future. Following the formal opening of negotiations in 1998
the candidate countries have accelerated their efforts to adopt and implement EU environment
legislation.  Institutional  capacity  has  also  been  strengthened  and  environmental  investments
increased.

In April 2003 Accession Treaties with ten countries will be signed and, following ratification,
the  EU  will  welcome  its  new  Member  States  on  1  May  2004.  As  from  accession  all  these
countries will be legally bound  to enforce  and implement the EU  environmental legislation.
Bulgaria, Romania and Turkey will continue to align their legislation with that of the EU as
part of their preparations for accession.

Beyond  the  current  candidates,  the  countries  of  South  Eastern  Europe  are  also  actively
harmonising their legislation with that  of  the  EU.  The  restoration  of  peace  and  the  political
changes  in  South  Eastern  Europe  since  1998  have  transformed  the  prospects  for  closer
environmental co-operation. The launching of the EU Stabilisation and Association Process in
1999  has  provided  the  structure  and  set  the  clear  objective  of  harmonisation  with  EU
standards, including in the Environment field.

Beyond  the  CEE  countries,  the  Partnership  and  Co-operation  Agreements  between  the  EU
and most of the NIS, that came into force in the period 1997-99, also set improvement of laws
towards  convergence  with  EU  environmental  standards  as  a  priority.  They  provide  a
mechanism  for  regular  high-level  dialogue  on  environmental  matters  through  the  PCA
summits, Co-operation Councils and in the case of Russia and Ukraine specific environment
sub-committees.  These  developing  relationships  between  the  EU  and  other  European
neighbouring  countries  have  become  a  very  significant  driving  force  raising  environmental
standards,  developing  cooperation  in  key  issues  such  as  climate  change  and  boosting
environmental investment in the continent.

4 

(http://www.rec.org/)

5

                                                
4. 

The goals of EU environmental cooperation within the wider Europe

Environmental Background

The EU’s eastern neighbours continue to  face  substantial environmental challenges. Priority
problems typically identified include: centres of great industrial pollution; pollution intensive
and  inefficient  heat  generation  and  distribution  systems;  increasing  pollution  from  road
transport;  poor  surface  and  groundwater  quality;  underdeveloped  municipal  environmental
infrastructure; and the inefficient use of natural resources.

In  countries  of Central  and Eastern Europe (CEE  countries),  European  Union  accession  has
acted  to  catalyse  most  environmental  initiatives.  The  speedy  adoption  and  advancing
implementation  of  EU  environmental  legislation  coupled  with  EU  and  other  sources  of
funding  are  already  bearing  fruit  and  are  expected  to  result  in  further  considerable
environmental improvements in the short to medium term.

In the Western Balkans, a decade of regional conflicts combined with insufficient institutional
infrastructure, decaying industrial systems and a legacy of years of unchecked pollution have
left  the environment of  the  region  in  a  state  of  serious  neglect.  In  addition,  the  institutional
and administrative capacity of  national and local  governments  in  the  field  of  environmental
policy is weak. Air pollution, poor water quality and waste problems add to the “hot spots” of
environmental concern that can be directly attributed to the legacy of conflict. Together these
continue to threaten the health of the local population.

During the economic transition period, a degree of pollution reduction has been achieved in
many countries in the NIS region. Most noteworthy is the autonomous reduction in some key
pollutants, which accompanied the massive reduction in industrial output in the early years of
transition.  Such  pollution  reduction  may  be  temporary  unless  regained  economic  growth  is
separated from a corresponding increase in pollution.

Several environmental problems that directly influence the health of the population in the NIS
persist: Substantial investments are needed for municipal wastewater treatment facilities and
the EU support is being directed to this aim. Many known hazardous waste disposal sites are
overloaded  and  not  adequately  isolated  from  the  environment  –  thus  posing  risks  to  the
environment and human health. A major problem and concern is the availability and quality
of drinking water, particularly in terms of microbiology and toxic substances. Contamination
by  pesticides  is  common.  Hot  spots  in  rivers  are  numerous.  Children  are  particularly
vulnerable  to  deteriorating  environmental  conditions.  High  infant  mortality  appears  to  be
linked  to  the  poor  quality  and  limited  supply  of  safe  water  and  to  weakened  public  health
systems.

More  effective  environmental  policies,  accompanied  by  improved  implementation  and
enforcement practices, are much needed and are gradually being introduced in the NIS region.

Goals of EU cooperation

The EU goals for future pan-European co-operation need to be set in the context of the broad
objectives of its international activity.

The EU strategy on 'Sustainable Development for a  Better World'  (2001) states that the EU
has a key role in bringing about sustainable development, within Europe and also on the wider
global stage, where widespread international action is required. It emphasises that the policies

6

of  the  EU  both  internal  and  external  must  actively  support  efforts  by  other  countries  to
achieve development that is more sustainable.

To  this  end  the  EU  is  committed  to  co-operate  effectively  with  other  countries  and
international organisations in providing leadership to meet these challenges.

At the recent Johannesburg World Summit for Sustainable Development (2002) the EU and
many other European countries committed themselves to a Plan of Implementation including
objectives,  targets  and  partnerships  that  are  relevant  to  the  pan-European  region.  These
include:

(cid:1)  Halving  by  2015 

the  proportion  of  people 

lacking  access 

to  basic  sanitation,

complementing the Millennium Development Goal on access to clean water;

(cid:1)  Minimising the harmful effects on human health and the environment from the production

and use of all chemicals by 2020;

(cid:1)  Halting  the  decline  of  fish  stocks  and  restoring  them  to  sustainable  levels  no  later  than

2015;

(cid:1)  Implementing national strategies for sustainable development by 2005;

(cid:1)  Reducing significantly the current rate of loss of bio-diversity by 2010;

(cid:1)  Urgent action to increase substantially use of renewable energy sources;

(cid:1)  A 10-year framework for programmes on sustainable consumption and production;

(cid:1)  Ratification and entry into force of the Kyoto Protocol at the earliest possible date;

(cid:1)  Strategic partnership on water between the EU and the States of Eastern Europe, Caucasus

and Central Asia;

(cid:1)  Pan-European East-West Partnership for Sustainable Development.

In the context of its bilateral and sub-regional co-operation, the EU stresses three further key
objectives for the pan-European region:

(cid:1)  Improvement of laws, towards EU standards, both for the environmental benefits this will

bring and in order to facilitate trade and investment

the  enlarged  EU, 

(cid:1)  Action-oriented  partnerships  to  protect  and  improve  the  environment  in  the  regions
the  Regional  Environmental
bordering 
Reconstruction  Programme 
the  Northern  Dimension
for  South-eastern  Europe, 
Environmental Partnership, the Danube-Black Sea Task Force and the Euro-Mediterranean
partnership.

in  particular 

through 

(cid:1)  Taking  into  account  the  Doha  Development  Agenda  and  in  particular  its  trade  and

environment dimension

7

5. 

From  goals  to  practice:  Priorities  for  environmental  co-operation  with  the
European neighbour countries

In defining any strategy for environmental co-operation with its European neighbours, the EU
will need to consider a regionally differentiated approach, that takes into account the fact that
several European countries will either be joining the Union in the next few  years or  will be
preparing for such eventual accession in a more distant time horizon.

Under such a regionally differentiated approach, the countries to the east of the Union can be
grouped, for the practical purposes of this communication, in four distinct groups:

1.

2.

3

4.

The 13 EU candidate countries;

The  5  Western  Balkan  countries  (Albania,  Bosnia-Herzegovina,  Croatia,  FYROM
and the Federal Republic of Yugoslavia (FRY);

The  Western  NIS  and  the  Caucasus  (Russia,  Ukraine,  Belarus  and  Moldova
Armenia, Azerbaijan, Georgia);

The  NIS  countries  of  Central  Asia 
(Kazakhstan,  Kyrgyzstan,  Tajikistan,
Turkmenistan  and  Uzbekistan),  which  participate  in  pan-European  co-operation  as
members of the UN European region, OSCE etc.

Each country and group of countries to the east of the present Union have their own specific
characteristics and have developed various forms of political co-operation with the European
Union. The  Union will be  using  the  agreements  it  has  with  each  one  in  order  to  co-operate
with  them  and  help  them  to  promote  their  further  sustainable  development.  The  dialogue
afforded  under  these  bilateral  agreements  will  be  the  main  mode  for  the  promotion  of  the
policies outlined below.

5.1. 

The 13 EU candidate countries

Countries  concerned:  Bulgaria,  Cyprus,  Czech  Republic,  Estonia,  Hungary,  Latvia,
Lithuania, Malta, Poland, Romania, Slovak Republic, Slovenia, and Turkey

The group of 10 new EU member states in 2004

Main  objective:  In  the  enlargement  context  the  Commission  will  continue  supporting  the
transposition  and  implementation  of  Union  environmental  legislation  by  the  candidate
countries.

The legal bases for co-operation with the candidate countries have been the bilateral Europe
Agreements  concluded  in  the  1990s,  and  as  regards  Cyprus  and  Malta  the  Association
Agreements concluded in the 1970s. On 16 April 2003 the ten acceding countries will sign the
Accession Treaty leading to accession on 1 May 2004 following the ratification process.

In  the  short  term,  the  Commission  will  continue  its  environmental  pre-accession  assistance
and  activities  in  these  countries  placing  greatest  importance  in  the  practical  implementation
and enforcement of the Union environmental legislation. The reinforcement of administrative
structures  at  national,  regional  and  local  levels  is  of  prime  importance,  as  well  as  the
strengthening of civil society and the role of non-governmental organisations.

8

After accession co-operation with these countries will  continue in the framework  of the EU
institutions. Monitoring of implementation and enforcement will be continued with particular
attention  on 
for  gradual
implementation of a limited number of EU Directives have been agreed with these countries.

transitional  arrangements  providing 

those  areas  where 

After accession and up to 2006 EU support for environmental protection will increase more
than threefold  compared to the pre-accession  period  as  the  structural  and rural  development
instruments  plus  the  transitional  institutional  building  facility  take  over  from  the  pre-
accession instruments (Phare, ISPA and Sapard).

The  financing  of  environmental  infrastructures,  reinforcement  of  administrative  structures,
assistance to NGOs and other civil society actors will be the main targets of Union financing.

All  these  countries  have  concluded  bilateral  agreements  with  the  European  Union  for  their
participation in the European Environment Agency (EEA).

Bulgaria and Romania

The  above  programme  of  activities  with  the  candidate  countries  during  pre-accession  will
continue to apply to Bulgaria and Romania with increased financial assistance from 2004.

The  recent  Copenhagen  European  Council  endorsed  the  Commission  Communication  on
detailed  roadmaps  for  Bulgaria  and  Romania.  These  roadmaps  provide  clearly  identified
objectives and  give  each  country  the  possibility of setting the pace  of its accession process.
The  Copenhagen  European  Council  concluded  that,  depending  on  further  progress  in
complying with the membership  criteria, the objective is to welcome  Bulgaria and Romania
as members of the European Union in 2007. In particular as far as environment is concerned,
the  roadmaps  set  out  for  each  country  short  and  medium  term  priorities  for  transposition,
preparation  of  implementation  plans  and  financing  strategies  and  for  strengthening
administrative  capacities  in  all  areas  covered  by  the  environment  negotiation  chapter.  In
addition, the overall financial assistance to these two countries should be gradually increased
by 40% by 2006  compared to  current levels. The Accession Partnerships with  Bulgaria  and
Romania will be revised in 2003.

Bulgaria  and  Romania  participate  in  the  Danube-Black  Sea  Task  Force  (DABLAS)5
mechanism  established  by  the  European  Commission6  for  improving  the  co-ordination
between the  Danube  and Black Sea Commissions and the others partners in the region. The
DABLAS  Task  Force  is  currently  developing  a  priority  investment  programme  for  key  hot
spots of the Danube-Black Sea ecosystem in particular with the co-operation of the PPC and
International Financial Institutions (World Bank, EBRD etc.).

Both of  these  countries  have  concluded  and  ratified  bilateral  agreements  with  the  European
Union  and  are  currently  participating  in  the  work  of  the  European  Environment  Agency
(EEA).

Turkey

Main  objective:  In  the  enlargement  context  the  Union  will  continue  its  support  of
transposition and implementation of Union environmental legislation by Turkey.

5 
6 

http://europa.eu.int/comm/environment/enlarg/dablas_en.htm
COM (2001) 615 final of 30.10.2001

9

                                                
The  main  instrument  of  co-operation  with  Turkey  is  the  Accession  Partnership,  which
describes the short and medium term objectives to be achieved during the accession process.
The Copenhagen European Council invited the Commission to submit a proposal for a revised
Accession Partnership and to intensify the process of legislative scrutiny.

The Commission will intensify the process of legislative scrutiny in the environment field and
facilitate  the  adoption  and  practical  implementation  by  Turkey  of  the  EC  environmental
legislation.  The  reinforcement  of  administrative  structures  at  national,  regional  and  local
levels will also be sought, as  well  as  the  strengthening  of  civil  society  and  the  role  of  non-
governmental organisations.

The Union has a specific pre-accession financial instrument for Turkey, whose resources will
infrastructures,
increase  significantly 
reinforcement of administrative structures, assistance to NGOs and other civil society  actors
will be some of the main targets of  Union financing.  Furthermore Turkey is participating in
the LIFE Third countries programme.

financing  of  environmental 

from  2004  The 

Turkey is a very active participant in the DABLAS network. Their involvement is particularly
meaningful, since the seat of the Secretariat of the Black Sea Convention is in Istanbul.

Turkey has signed a bilateral agreement with the European Union for its formal participation
in the European Environment Agency. Ratification by Turkey of this agreement is expected.
Turkey has also recently signed the charter of the Regional Environment Centre  for  Central
and Eastern Europe and is expected to ratify the agreement very soon.

5.2. 

The Western Balkan countries

Countries concerned: Albania, Bosnia-Herzegovina, Croatia, Former Yugoslav Republic of
Macedonia (FYROM) and the Federal Republic of Yugoslavia (FRY).

Main objective: Focus on EU harmonisation activities in line with the Copenhagen European
Council conclusions to support their efforts to move closer to the EU.

The European Union approach to South Eastern Europe is governed by the Stabilisation and
Association Process which gives particular emphasis to regional cooperation. Environment by
its regional nature thus assumes a prominent role in the implementation of this policy.

The cornerstone of this approach will be a new kind of contractual agreement, tailor made for
each country - a Stabilisation and Association Agreement (SAA). This offers the countries the
prospect of integration into EU structures whilst setting political and economic conditions to
be  met.  The  first  SAAs  have  been  negotiated  with  Croatia  and  FYROM.  Environment  is
included as a key area for co-operation.

The financial and technical assistance to underwrite this process will be provided through the
CARDS  programme  (Community  Assistance  for  Reconstruction  Democratisation  and
Stabilisation).  The  CARDS  financing  strategies  that  run  until  2004  contain  a  significant
component to cover environmental assistance with over €100 million foreseen for the region
over the next three years. Broadly speaking the assistance will address:

-

-

Institution building

Support to environmental civil society

10

-

Reducing environmental health threats

These same goals are at the core of the regional co-operation provided by the Stability Pact
for South Eastern Europe (launched  in June 1999), which aims  to  bring peace, stability  and
economic development to the region.

Environment was an early inclusion into the Stability Pact and under the driving force of the
Commission the Regional Environmental Reconstruction Programme (REReP) was endorsed
by  the  Stability  Pact  as  the  vehicle  through  which  the  various  bilateral  environmental
programmes  aimed  at  institutional  and  civil  society  reform  are  co-ordinated.  REReP  co-
operation covers the three areas outlined above (institution building, support to environmental
civil society and reducing environmental health threats). The terms of reference of the REReP
were recently amended to strengthen the link to the Stability and Association Process (SAP)
and  all  participants  are  now  increasingly  focussed  on  the  harmonisation  with  the  EU.  The
REReP will assist the regional cooperation that is a requirement of the SAP.

The Regional Environment Centre (REC) for CEE was chosen to provide a secretariat for co-
ordination  and  to  service  the  REReP  mechanism.  Another  facilitator  of  co-operation  in  this
region  is  the  European  Environmental  Agency,  which  is  taking  steps  to  survey  the
environmental situation in the Balkans as part of its assessment of the overall environmental
situation in Europe.

The Danubian countries of the region (FRY, Bosnia and Herzegovina, FYROM and Croatia),
participate in the Danube-Black Sea Task Force (DABLAS).

Under  all  these  bilateral  and  regional  instruments  the  Union  has  sought  to  address  some
urgent environmental problems arising mostly from the recent Balkan conflicts. These efforts
will continue in the future, while the orientation of EU co-operation with these South Eastern
European  countries  now focuses  on  activities  linked  to  approximation  of  EU  environmental
legislation and development of the necessary institutional and administrative capacities for the
implementation of this legislation.

5.3. 

The Western NIS and the Caucasus

Countries concerned: Russia, Ukraine, Moldova, Belarus, Armenia, Azerbaijan and Georgia

Main objectives: To strengthen environmental co-operation and effective implementation of
priorities set out in PCAs, to move towards convergence of environmental policies and laws
with  EU  environmental  standards.  The  Communication  on  EU-Russia  Environmental  Co-
operation  (2001)7  identified  combating  climate  change,  efficient  use  of  energy,  improving
public health, and improving resource efficiency as specific priorities.

Russia is already a direct neighbour of the Union, as will be Ukraine, Moldova and Belarus
after  EU  enlargement.  The  Caucasus  countries  can  also  be  considered  in  this  group  on
account of their proximity to the Black Sea and Turkey. Various geographical, environmental
and political reasons argue for closer Union co-operation with all these countries.

The  main  instruments  of  co-operation  with  these  countries  are  the  Partnership  and  Co-
operation  Agreements  (PCAs)  with  the  Union  that  are  in  force  for  all  of  them  except
Belarus. They commit both sides to strengthening co-operation on environmental matters and

7 

COM (2001) 772 final of 17.12.2001

11

                                                
set  out  priorities  for  co-operation.  For  Russia  and  Ukraine,  sub-committees  and  ad  hoc
working  groups  have  been  established  within  the  PCA  framework  to  deal  inter  alia  with
environmental,  climate  change  and  sustainable  development  issues.  A  joint  environmental
programme of action for Russia was agreed in 2000.

The  PCAs  recognise  that  an  important  condition  for  strengthening  the  economic  links
between  the  NIS  and  the  Community  is  the  approximation  of  their  existing  and  future
legislation to that of the Community. Apart from the direct benefits to the environment, such
convergence  of  standards  will  assist  the  progressive  development  of  freer  trade  and
investment within the common European economic space.

Additional  co-operation  with  these  countries  will  focus,  in  particular,  on  the  two  main  sub-
regional co-operation mechanisms established so far by the Union, the DABLAS Task Force
and the Northern Dimension8. Added impetus will come from the two partnerships involving
the NIS launched in Johannesburg with EU support. These are:

(cid:1)  The  Pan-European  East-West  Partnership  for  Sustainable  Development  including
harmonisation  with  EU  standards,  pollution  prevention  and  control,  natural  resources
management,  integrated  water  resources  management,  provision  of  water  supply  and
sanitation services, integration of environmental considerations into sector policies etc.

(cid:1)  The  Strategic  Partnership  on  Water  for  Sustainable  Development  between  the  EU
and  the  NIS.  The  EU  Global  Water  Initiative  launched  in  Johannesburg  contains  a
component designed to work with these  countries in meeting what has been identified as
their greatest environmental and health challenge, i.e. better water resources management,
including  water  supply  and  sanitation.  The  partnership  will  focus  on  cooperation  for  the
implementation of river basin management agreements on the basis of the approaches the
EU is developing under the Water Framework Directive as well as improvement of urban
water supply and sanitation. The Johannesburg targets on water use, sanitation and human
health  will  guide  the  actions  to  be  developed  with  the  assistance  of  the  European  Union
and  other  donors.  A  high-level  meeting  on  the  initiative  will  be  held  in  the  NIS  in  early
2003. The  next milestone  in  this  work  will  be  its  presentation  in  the  Third  World  Water
Forum in Kyoto in March 2003. An action plan will be presented for adoption by the Kiev
Conference.

The  above  two  partnerships  involving  the  NIS  are  expected  to  be  two  key  agreements  that
will  be  formalised  at  the  Kiev  Conference  in  May  2003.  The  EU  TACIS  programme  is
expected  to  take  into  account  the  work  programmes  of  the  two  partnerships  in  the  further
development of its assistance programmes in the post-Kiev perspective.

Russia, Ukraine, Belarus, Moldova and Georgia participate in the DABLAS Task Force.

The new Regional Environment Centres (RECs) are expected to develop further as important
facilitators of cooperation in the NIS area. They were established in Moscow, Kiev, Chisinau,
Tbilisi  (Caucasus  region)  and  Almaty  (Central  Asian  region)  in  the  context  of  the

8 

The  Northern  Dimension  is  an  initiative  undertaken  by  the  European  Union  for  the  promotion  of
sustainable development actions in an area covering the northern EU Member States, the South-eastern
Baltic Sea countries and Northwest Russia. Financing by the Commission, Russia, Denmark, Finland,
Netherlands,  Norway,  Sweden,  the  EIB,  EBRD,  the  World  Bank,  the  Nordic  Investment  Bank  and
NEFCO under the Northern Dimension Environmental Partnership will support environmental projects
with concentration in areas such as St. Petersburg, Kaliningrad, Karelia and Murmansk.

12

                                                
"Environment  for  Europe"  process.  The  RECs  have  started  to  implement  programmes  of
cooperation with NGOs, local authorities and business for the promotion of civil society and
environment in  the  subregions  where  they  are  operating.  Their  value  added  is  that  they  can
bring local commitment to the process, through their rich network of stakeholders.

5.4. 

The NIS countries of Central Asia

Countries concerned: Kazakhstan, Kyrgyzstan, Tajikistan, Turkmenistan and Uzbekistan

Main  objectives:  promotion  of  democracy,  security  and  conflict  prevention  through
environmental  cooperation.  Encourage  sustainable  use  of  natural  resources  in  particular
through 
international
environmental agreements

improved  water  and  energy  management.  Implementation  of 

Cooperation  will  be  based  on  the  Partnership  and  Cooperation  Agreements  in  force  with
Kazakhstan,  Kyrgyzstan  and  Uzbekistan,  and  signed  with  Turkmenistan,  and  the  Trade  and
Cooperation Agreement with Tajikistan. Kazakhstan has placed  environment  as one  of their
priority areas under their national Tacis programme.

The implementation of the EU-NIS Water Partnership will be particularly important for these
countries, which face important problems of water use and management. Additional benefits
to their overall  environmental  well  being  are  expected  to  result  from  the  implementation  of
the Pan-European East-West Partnership for Sustainable Development.

The Commission's new Strategy Paper for Central Asia 2002 to 2006 identifies the sharing of
natural resources as one of the key challenges shared by the countries of the region, including
the issues of water and energy, which are becoming ever more sensitive, with huge, and often
conflicting,  national  interests  at  stake  in  relation  to  energy  production,  agriculture  and
ecology.  Managing  of  natural  resources  is  clearly  identified  as  an  area  of  co-operation  for
Tacis assistance to the countries of the region

6. 

Future  co-operation  of  the  European  Commission  with  the  "Environment  for
Europe" process

The  founders  of  "Environment  for  Europe"  in  the  early  1990s  saw  it  as  an  overarching
political framework providing leadership and setting the policy agenda for  a long-term pan-
European  environmental  programme.  As 
the  continuing  debate  on  pan-European
environmental governance shows, while the process has fallen short of this original vision, it
nevertheless has had some success in linking the many different actors and initiatives. It has
played  a  useful  role  as  a  platform  for  sharing  information,  networking  and  strengthening
cooperation among activities and processes in the region. The EU has played a leading role in
many of the activities.

6.1. 

Re-focus on the NIS

As the Aarhus conference in 1998 recognised, as regards the EU candidate countries, the role
of  the  'Environment  for  Europe'  in  mobilising  and  targeting  efforts  by  donors,  partner
countries,  international  organisations  and  the  IFIs  has  been  overtaken  by  the  accession
process. The activities of the EAP Task Force and Project Preparation Committee (PPC) have
since been focused on the non-candidate CEEs and the NIS. The EAP Task Force provided a
framework for environmental work in South Eastern Europe since 1998 and a model for the
establishment of the REReP.

13

Economic  and  social  development  needs  compete  for  resources  in  these  countries  with
environmental  issues.  NIS  ministers  recently  called  for  action  to  accelerate  environmental
reforms in order to prevent further environmental degradation noting that the environmental
situation remained serious and that there had been only limited progress so far in refocusing
efforts on the NIS9.

For  the  European  Commission  it  is  clear  that  the  NIS  must  remain  a  major  focus  for  pan-
European  environmental  co-operation  for  years  to  come.  The  task  ahead  is  vast  and  efforts
need to be reinforced and as necessary re-directed in order to achieve effective progress.

EU bilateral co-operation through the PCA mechanisms should play an increasingly important
role  in  developing  a  substantive  strategic  dialogue  with  NIS  governments.  However  as  the
Communication on EU-Russia Environmental Co-operation (2001) concluded, there is a clear
need for greater political commitment by partners in order to realise the full potential of these
mechanisms.

The ‘Environment for Europe’ process, in re-orientating its work to strategic initiatives within
the NIS, should particularly address those areas where the experience gained and the expertise
of the EAP Task Force and the Regional Environmental Centres would bring an added value
with respect to the bilateral cooperation of individual donor countries or of the EU. It should
ensure that the participation of the countries is based on a real understanding and commitment
to reform. Further efforts to increase investment should continue, especially in the municipal
sector.

Within the limit of available resources the European Commission will support the East-West
Partnership for Sustainable Development and the related EU-NIS Water Partnership.

In addition, environmental co-operation with the NIS will take into account the work  of the
Organisation  on  Security  and  Co-operation  in  Europe  (OSCE)  in  the  area  of  environmental
security.

6.2. 

The work on legal instruments

"Environment  for  Europe"  has  helped  to  win  political  support  for  the  adoption  of  pan-
European  legal  instruments,  notably  the  Aarhus  Convention  on  Public  Participation  and  the
protocols to be signed at the Kiev Conference; the process also played a role in the transition
of standards in the UNECE region. However, this is now diminishing as the emphasis shifts
from negotiation of new conventions to the implementation of the existing ones. International
conventions, including global ones, can still play an important role in raising environmental
performance,  however,  this  depends  on  them  being  signed,  ratified  and  implemented  by
participating  countries.  This  has  not  always  been  the  case  so  far.  Therefore  donors  should
seek to focus assistance on the implementation of international conventions.

Moreover  with  the  forthcoming  EU  enlargement  and  the  moves  by  other  neighbouring
countries  to  adopt  or  converge  towards  EU  environmental  standards,  EU  legislation  will
become the principal and most effective means of international law making for most countries
of the region.

9 

Statement  of  Ministers  of  Environment  of  12  countries  (Armenia,  Azerbaijan,  Belarus,  Georgia,
Kazakhstan,  Kyrgyz  Republic,  Moldova,  Russian  Federation,  Tadjikistan,  Turkmenistan,  Ukraine,
Uzbekistan) on the development of the Environment Strategy, Hague 16 April 2002.

14

                                                
The enlarged EU working with its partners will become increasingly the principal driving and
co-ordinating  force  in  the  normative  field  for  environmental  improvement  and  sustainable
development  in  Europe.  The  role  of  "Environment  for  Europe"  in  this  respect  is  therefore
likely to diminish, although there will remain a need to co-ordinate activities within the UN-
led  system  in  Europe  and  to  link  these  with  the  activities  of  other  actors.  The  European
Commission will continue to support such efforts. For example the UNECE has been invited
by  the  EU  to  take  further  action  to  promote  the  implementation  of  the  outcome  of
Johannesburg  in  the  pan-European  region10.  The  Commission  will  also  continue  to  support
specific initiatives  such as the pan-European  State  of the Environment  Assessments and the
related Working Group on Environmental Monitoring.

6.3. 

The role of the Regional Environment Centres

The  role  of  the  Regional  Environment  Centre  (REC)  for  Central  and  Eastern  Europe  will
change  significantly  because  of  EU  enlargement.  The  new  member  states  will  be  full
members of all Community programmes, committees and working groups and other informal
networking  activities.  The  REC  will  have  to  compete  with  other  providers  of  services  if  it
wants to continue providing services for the new member states.

Environmental  co-operation  especially  for  capacity  building  with  South  Eastern  Europe
including Turkey is an important EU priority and there is scope for an increased role for the
REC  there.  In  particular,  in  the  short  term  Bulgaria  and  Romania  will  continue  to  need
significant support for capacity building to help prepare for accession. Work with the Balkan
states and Turkey has a more medium-term perspective but is also a priority.

The five Regional Environmental Centres in the NIS are strongly supported by the EU and
funded  through  the  Tacis  programme.  After  an  initial  –  and  for  some  of  them  sometimes
difficult - start of operations they all should reach maturity by the time of the Kiev conference
and be able to play the role for which they were set up. The NIS RECs have an important part
to  play  after  Kiev  in  securing  the  involvement  of  the  NIS  civil  society  in  environmental
protection and sustainable development of the region. Greater political will on the part of the
governments of the NIS for the support of the RECs will also be vital for the RECs to succeed
in their mission. The REC-Budapest can play a useful role in providing support and transfer
its experience with the EU candidate countries to them.

7. 

Conclusions

European environmental co-operation is entering a new phase with the enlargement of the EU
and the rapid development of its partnerships with the countries of South Eastern Europe and
the  NIS.  The  structures  for  co-operation  developed  in  the  early  1990s  must  evolve  to  take
account of the new opportunities that this will open for environmental advances.

The  European  Commission  will  channel  its  future  cooperation  through  existing  bilateral
mechanisms with candidate countries, the Western Balkans and the NIS. It will also continue
to take the lead in supporting action in the sub-regions bordering the enlarged EU through its
participation in sub-regional networks of cooperation such as the EU Northern Dimension, the
Danube-Black Sea Task Force and the REReP.

10 

Council  Conclusion  on  the  “Follow-up  of  the  World  Summit  on  Sustainable  Development”,  General
Affairs Council (GAC) of 30 September 2002

15

                                                
The  European  Commission  will  continue  to  support  and  play  its  part  in  pan-European  co-
operation mechanisms when these are supported by partner countries and organisations in the
region and add value to the bilateral co-operation mechanisms of the EU.

The  involvement  of  the  Commission  in  the  above  frameworks  of  cooperation  will  be
constrained  by  the  resources  available  within  the  current  EU  financial  perspectives  that  run
until 2006.

In summary the European Commission will:

(cid:1)  Focus  on 

the  broad  objectives  for  sustainable  development  and 

integration  of
environmental considerations as set out in the  EU  strategy  on  “Sustainable  Development
for  a  Better  World”  and  the  agreements  achieved  in  the  recent  Johannesburg  World
Summit;

(cid:1)  Pursue  concrete  and  differentiated  environmental  objectives  with  neighbouring  partner
countries  primarily  through  bilateral  partnership  mechanisms  and  the  dialogue  promoted
under them;

(cid:1)  Further improve knowledge about Europe's environment including through participation of
partner countries in the pan-European reporting of the European Environment Agency;

(cid:1)  Help  promote  environmental  civil  society  in  the  NIS  through  the  Regional  Environment

Centres.

16