implementation handbook of environmental acquis

8/14/2019 Implementation Handbook of Environmental Acquis

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HANDBOOK ON THE IMPLEMENTATION OF EC ENVIRONMENTAL LEGISLATIO

on the Implementation ofEC Environmental Legislation

Handbook


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Handbookon the

Implementation ofEC Environmental Legislation

Edited byRegional Environmental Center

Umweltbundesamt GmbH

This document has been produced with the financial assistance of the European Union.

The views expressed herein can in no way be taken to reflect the official opinion of the European Union.


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DisclaimerThe content and views contained are those of the authors and do not necessarily represent those of theEuropeanCommissionitself.TheRegionalEnvironmentalCenterforCentralandEasternEurope(REC)takesresponsibilityfor thesectionscoveringnewlegislationandamendments toexistinglegislationfrom1 January2003 to 31 December 2007. In several sections, the Handbook also contains reference to key legislationadopted after 31 December 2007. The REC does not take responsibility for ensuring the accuracy of theinformationcoveringECenvironmentallegislationfortheperiodpriorto1January2003.

AcknowledgmentsThecurrentupdateoftheHandbookonthe ImplementationofECEnvironmentalLegislationwasproducedbythe REC under the project EUROPEAID/124644/D/SER/Multi, covering the period 1 January 2003 to 31December 2007, with valuable input from external consultants with a long track record in supporting thetransposition and implementation of the EC environmental acquis. It was written by, in order of relevance,Miriam Markus-Johansson (REC), Simone Borg, FritzKroiss (Umweltbundesamt GmbH,Austria, hereinafterUBA), Sandor Fulop (Environmental Management Law Association, now GreenOmbudsman for Hungary),HelmutWitzani(UBA),HermannGoetsch(UBA),CamelliaDikova,CecileMonnier(REC)andEditHdl(UBA).The Handbook underwent major editing, formatting and technical updating to feature new interactive, user-friendly toolsto orient usersacrosstheHandbookandto help themmove fromone section toanother. TheeditingandformattingweremainlyundertakenbyRachelHidegandCecileMonnierfromtheREC.TheRECPublishingDepartmentis ingeneralacknowledgedforitssupportandinputthroughoutthewholeprocess.Wealsorecognise thecoordinationand quality reviewof theformerRECteam leaderStephenStec, thecurrent

RECprojectmanager,TsvetelinaBorissovaFilipova,aswellasMiriamMarkus-Johansson.

TheentirecontentsofthispublicationarecopyrightTheEuropeanCommunities

Nopartofthispublicationmaybesoldinanyformorreproducedforsale

withoutpriorwrittenpermissionofthecopyrightholder


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Handbook on the Implementation of EC Environmental Legislation 3

About the RECTheRegionalEnvironmentalCenterforCentralandEasternEurope(REC)isanon-partisan,non-advocacy,

notfor-profitinternationalorganisationwithamissiontoassistinsolvingenvironmentalproblemsinCentralandEasternEurope(CEE).Thecenterfulfilsthismissionbypromotingcooperationamongnon-governmentalorganisations,governments,businessesandotherenvironmentalstakeholders,andbysupportingthefree

exchangeofinformationandpublicparticipationinenvironmentaldecisionmaking.

TheRECwasestablishedin1990bytheUnitedStates,theEuropeanCommissionandHungary.Today,theRECislegallybasedonachartersignedbythegovernmentsof29countriesandtheEuropeanCommission,andonaninternationalagreementwiththegovernmentofHungary.TheREChasitsheadofficeinSzentendre,Hungary,andcountryofficesandfieldofficesin17beneficiarycountries:Albania,BosniaandHerzegovina,Bulgaria,Croatia,theCzechRepublic,Estonia,Hungary,Latvia,Lithuania,theformerYugoslavRepublicof

Macedonia,Montenegro,Poland,Romania,Serbia,Slovakia,SloveniaandTurkey.

RecentdonorsaretheEuropeanCommissionandthegovernmentsofAlbania,Austria,BosniaandHerzegovina,Canada,Croatia,theCzechRepublic,Estonia,Finland,Germany,Hungary,Italy,Japan,Latvia,Lithuania,Luxembourg,theformerYugoslavRepublicofMacedonia,Montenegro,theNetherlands,Norway,

Poland,Romania,Serbia,Slovakia,Slovenia,Spain,Sweden,Switzerland,Turkey,theUnitedKingdomandtheUnitedStates,aswellasotherintergovernmentalandprivateinstitutions.

About the Umweltbundesamt

TheUmweltbundesamt(UBA)istheexpertauthorityofthefederalgovernmentofAustriaforenvironmentalprotectionandenvironmentalcontrol,dealingwithallareasofenvironmentalprotection.TheUBAisthecompetentinstitutionfortheestablishmentoflinksbetweenscience,politics,theauthoritiesandpractical

application.

ThepurposeoftheworkcarriedoutbytheUBAisprimarilytosupporttheenvironmentalpolicyofthefederalgovernment,whichissuppliedbytheUBAwithawiderangeofinformationonthesourcesofenvironmentalpressuresandonwaysofpreventingorreducingsuchpressures.TheUBAalsoproducesproposalsfor

technical-ecologicalrulesandguidelines.

TheUBAcurrentlyemploysmorethan440expertsinenvironmentallyrelevantdepartments,aswellasgraduatesinawiderangeofdisciplinesfromuniversitiesathomeandabroad,whoallmakeupahighly

qualifiedaswellascommittedandcreativeteam.


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4 Handbook on the Implementation of EC Environmental Legislation


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Table of contents

INTRODUCTION ............................................................................................................................................................ ..7SECTION 2 - HORIZONTAL LEGISLATION..................................................................................................................27 SECTION 3 - AIR QUALITY LEGISLATION ................................................................................................................167 SECTION 4 - WASTE MANAGEMENT LEGISLATION ................................................................................................393 SECTION 5 - WATER PROTECTION LEGISLATION ..................................................................................................609 SECTION 6 - NATURE PROTECTION LEGISLATION

.................................................................................................747 SECTION 7 - INDUSTRIAL POLLUTION CONTROL LEGISLATION ........................................................................829 SECTION 8 - CHEMICALS AND GMO LEGISLATION ...............................................................................................913 SECTION 9 - NOISE LEGISLATION............................................................................................................................1027 SECTION 10 - CIVIL PROTECTION LEGISLATION ..................................................................................................1063


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Introduction


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INTRODUCTION

INTRODUCTION


Introduction

1. Objective of the HandbookThe objective of theHandbook on the Implementation of EC Environmental Legislation is toprovide a planning framework and step-by-step guidance on the approaches and specificactivities required to ensure the effective and legally compliant implementation of EC

environmentallegislation.Ittargetscandidatecountries,potentialcandidatecountries,aswellasexistingMemberStates.TheHandbookprovides:

an introduction toeachenvironmental sector settingout a framework for planning theimplementationofthelegislationcontainedwithinthatparticularenvironmentalsector1;

separatefichescontaining informationandguidanceabouteach legalactpresented intheECsacquisguidancedocument2;

ample examples of implementation efforts in existing Member States, highlightinginstitutional,policyandlegislativeframeworks.

TheHandbook,initsoriginalformatof1999,wastheresultofacollaborativeeffortbetweentheEuropean Commission (Directorate General for Environment) and the Phare-funded DISAEprogramme (aPhareenvironmentalapproximation facility). Thefirst revisionof theHandbook

wascarriedout in2002 byProjectManagementGroup (PMGroup),under thePhare-fundedprojectEUROPEAID/113417/D/SV/R20.In2007,theRegionalEnvironmentalCenterforCentralandEasternEurope(REC)wastaskedtocarryoutasecondupdateandrevisioncoveringalllegislativedevelopmentsintheareaofECenvironmentallawfortheperiod1January2003to31December2007undertheprojectEUROPEAID/124644/D/SER/Multi.

Although DG Environment have undertaken a review of the material contained within thisHandbook,thefindings,conclusionsandlegalinterpretationsexpressedinthisdocumentshouldnotnecessarilybetaken toreflectthepoliciesoropinionsof theEuropeanCommission itself.TheHandbookprovidesanoverviewofEuropeanCommunityenvironmentallegislationanditsimplementation,buttheactuallegislativetext(asinterpretedandclarifiedbytheEuropeanCourtofJustice(ECJ)mustalwaysbetakenasthedefinitiveandlegallybindingreference.

1 The term environmental sector refers to the grouping of EU legal instruments in the environmental acquis. In

some sectors, such as the waste management sector and water quality sector, this grouping is logically in line

with the traditional (technical) understanding of the term sector. However, for others like the horizontal sector,

the meaning of sector is misleading. This may also be considered to be the case as regards Section 10 (Nuclear)

which is no longer handled by DG Environment.2 Guide to the Approximation of European Union Environmental Legislation. Commission Staff Working Paper

SEC(97) 1608 of 25.08.97


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INTRODUCTION


2. Target GroupTheHandbookisprimarilyaimedatofficials(legislators,civilservants,planners,environmentaladvisers, etc.) innational, regionalandlocalgovernmentagenciesin candidatecountries andpotential candidate countries, who are responsible for the planning, management andimplementationofenvironmentallawsandprogrammes.However,itishopedthattheHandbook

mayalsobeof interest tootherpartiesincandidate countries,suchaspeopleworking intheindustrial andcommercial sectors whoareaffectedby the legislation,andnon-governmentalorganisations(NGOs)infact,allrelevantstakeholdersincandidatecountries.TheHandbookisalsoofusetoexistingMemberStates,especiallythosesectionsdealingwithnewlegislationwith transpositiondatesafter 2007.This is the casewith theWaterFramework Directive, forexample,whichentersintoforceprogressivelyuntilfulltranspositionin2013.

3. Structure of the HandbookTheHandbookisdividedintotwomainparts,asillustratedintheboxbelow:

the present introductory chapter on the Handbook itself and the accession process

(Chapter1); nine chapters with overview and fiches for the environmental sectors in question

(Chapters2to10).InChapter9,onnoise,thesectionsincludeageneraloverviewoftheentirenoiselegislativeframeworkwhilethereisonlyoneseparateficheontheDirectiveonAmbientNoise.

Structure of the HandbookChapter1:IntroductionImplementationandtheAccessionProcess

Chapter2:HorizontalLegislation

Chapter3:AirQualityLegislation

Chapter4:WasteManagementLegislation

Chapter5:WaterProtectionLegislation

Chapter6:NatureProtectionLegislation

Chapter7:IndustrialPollutionControlandRiskManagementLegislation

Chapter8:ChemicalsandGeneticallyModifiedOrganismsLegislation

Chapter9:NoiseLegislation

Chapter10:CivilProtectionLegislation

This Handbook is basedon the environmental acquis up to December 2007. The content isbased on a list of environmental and civil protection legislation, approved by the EuropeanCommissioninFebruary2008.ItwasdecidedbytheEuropeanCommissionthattheHandbook

wouldnotcoverallnoiseandnuclearsafetyandradiationprotectionlegislation.

AccesstoallthelegalinstrumentsconsideredinthisHandbookisavailablethroughthewebsitehttp://eur-lex.europa.eu/, which is a service provided free of charge in all the official EUlanguages.Thiswebsiteprovidesdirectaccess toalllegalinstruments(decisions, regulationsand directives) inpdf andhtml format. The Eur-lex search engineallows users tosearch forlegislationeitherbyenteringthenumberofthelegislativeactorbyenteringkeywords.TheEur-lexwebsiteincludesabibliographywithdetailsofallamendments,correctionsorrepealingacts,the legal basis and references to consolidated versions of the legislation. The website alsocontainsinstrumentsthatarenolongerinforce.


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INTRODUCTION


Inaddition,Eur-lexcontainscaselawfromtheCourtofFirstInstance(CFI)andEuropeanCourtof Justice (ECJ). These casesoften concern situationswhereaMember State has failed toimplementanEUdirectiveontimeorhasfailedtoimplementitcorrectlyandadequately(e.g.implementation did not satisfy the objectives and aimsof the relevantEC legislation). Theserulings provide important information on what action Member States are required to take toensure full implementation andadequate application of Community environmental legal acts.More details about case law, including references to court opinions and opinions of the

advocate-generaloftheECJcanbeobtainedat:http://curia.europa.eu/en/transitpage.htm.

InadditiontoEur-lex,theEUprovidessummariesofEClegislation,includingtheenvironmentalacquis and legislation on civil protection, on the the SCADPlus website:http://europa.eu/scadplus/scad_en.htm.Thesummaries,whichareprovidedin11EUlanguages,areoneor twopageslongandincludelegislativeproposalsandpolicydocumentationsuchascommunicationsandguidelines.Thesummariessetoutthemainobjectivesoftheacts,thekeyprovisionsandresponsibilitiesof theMemberStates,aswellasimplementationdeadlines.OntheSCADPluswebsite,ECenvironmental instrumentsareorganisedsectorby sector(e.g.air,chemicals,waste,horizontallegislation).

AnothersourceofinformationisPreLex:http://ec.europa.eu/prelex/apcnet.cfm?CL=en..PreLexfollows all Commission proposals (legislative and budgetary dossiers, conclusions of

international agreements) and communications from their transmission to the Council or theEuropeanParliament.PreLexalso containslinksallowingusersdirectaccess to theavailableelectronic texts (COM3documents, the Official Journal, the Bulletin of the European Union,documentsoftheEuropeanParliament,pressreleases,etc.).

The Table below shows the approximate distribution of directives, regulations and decisionsincludedintheHandbookasofDecember2007.

Table Summary of EC Environmental Legislation Considered in the Handbook by SectorSECTOR Directives Regulations Decisions TotalHorizontal 7 3 0 10AirQuality 16 6 7 29WasteManagement 19 1 8 28WaterProtection 13 0 1 14NatureProtection 4 4 1 9IndustrialPollutionControl 3 2 1 6ChemicalsandGeneticallyModifiedOrganisms

7 3 5 15Noise 1 1CivilProtection 1 5 6TOTAL 70 20 28 118

4. Contents of the Handbook4.1 Part 1 Introduction

3 Proposed legislation and other Commission communications to the Council and/or the other institutions, and their

preparatory papers.


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INTRODUCTION


Theintroductorysectionsof theHandbook cover firstly thenatureof theHandbook itself andsecondlytheroleoftheimplementationprocessanditsrelationtoaccession.

4.2 Part 2 EC Environmental Legislation by SectorForeachenvironmentalsectorthereisanoverviewofthesector,followedbyaficheforeachlegalinstrumentaddressed.

SectorOverview

Theobjectiveofthesectoroverviewistoprovideadescriptionofimplementationissuesforthelegislationconsideredinthesector.Thesectoroverviewdescribesaframeworkforplanningtheeffectiveimplementationofthelegislation.

Eachsectoroverviewhasacommonstructure,whichisillustratedintheboxbelow.

European Community environmental legislation is increasingly interrelated, reflecting theCommunitys overriding objective of promoting sustainable development. This approach is inaccordancewithspecifictreatyobligationsregardingtheintegrationofenvironmentalprotectionrequirementsintothedefinitionandimplementationofotherCommunitypolicies,aswellaswiththeinherentintegratednatureofeffectiveenvironmentallegislation.TheapproachadoptedintheHandbookthusalsoreflectstheconsiderationthattheenvironmentbeaddressedasawholein

relevantlegislationandaction.

TheconceptofintegrationcanbeseenwithineachsectorcoveredintheHandbook,aswellasbetweensectors.Whereappropriate,cross-referencestodifferentlegalinstrumentsindifferentsectorshavebeenmade.Asaresult,itisrecommendedthatindividualEClegalactsshouldnotbe implemented in isolation. In this way, an environmental legislative, administrative andenforcementsystemthatmirrorsthatprovidedforbyCommunitylawmaybeattainedwithinthecandidate countries. Further benefits also follow from adopting this approach, such aseconomiesofscaleinsettingupasingleregulatoryauthoritytodealwiththeimplementation,applicationandenforcementofseveraldirectives.

Thispracticalsolutionmay,inaddition,reducecostsinpracticeforstakeholders,whowillhavetodealwithonlyoneregulatorybodywithintheparticularareasofactivitycoveredbyanyonegroupofdirectives. Itmayalso promotebetter applicationandenforcementbecauseasingle

regulatorybodywillbelikelytohaveabetteroverviewoftheoperationsinquestion.

However,itshouldnotbeforgottenthat,withoutadequateadvanceplanning,theimplementationof one directive inadvanceofanother could lead toenvironmental problemselsewhere. Forexample, implementationof the UrbanWasteWaterDirective (91/271/EEC) (seeSection 5 Water Sector) might lead to increased volumes of sewage sludge, which then need to bedisposedofinaccordancewiththeWasteFrameworkDirective(2006/12/EC)(seeSection4WasteSector).

Structure and Contents of the Sector OverviewsIntroductionandOverview

Introduces EC policy in the environmental sector, describes the legal instruments underconsideration,andreferstootherrelevantlegislationintheHandbook.

DevelopmentofaSectoralStrategyandImplementationPlan

Outlinesthestepswhichneedtobetakentoprepareaplantoimplementthelegislationwithinthatsector.

InstitutionsandRelevantParties

Describesthekeystakeholdersaffectedbythe legislationandtheirrolein implementation,anddiscussestheroleofcompetentauthoritiesandgovernmentatnational,regionalandlocallevel,publicversusprivateinvolvement,communicationsandconsultation.


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INTRODUCTION


TechnicalIssues

Addressestechnicalissuesinthelegislation.Theseissuesmayrequireexpertiseandspecialisedequipment, for example to set guideline emission standards, monitor emissions and preparetechnicalguidancenotes.

RegulationandEnforcement

Describessomeofthekeyissuesarisingfromcontroloftheimplementationofthelegislation.This covers licensing and permitting procedures, monitoring, inspection, enforcement, datacollection and reporting. The role of enforcement in ensuring compliance in practice withCommunityenvironmentallegislationshouldnotbeunder-estimated,andhasbeenhighlightedwhererelevanttoeachfiche.

PrioritiesandTiming

Discusses ways of prioritising the implementation tasks based on legal, institutional, andeconomicandfinancialaspects.Italsoprovidesguidanceonwhichtasksaremostlikelytoaffectthe implementation programme, due, for example, to the need for planning, institutionalstrengthening,andthe designandconstructionof newfacilities.Forcomplicatedandinvolvedlegalinstruments,wheretheprocessofimplementationislikelytobecomplexandinvolvemanyactors,a timetable foractionbyMemberStatesis setout (see,forexample, undertheWater

FrameworkDirective[2000/60/EC],Section5).

EconomicandFinancialIssues

Discussesthetypesof costsarisingfromtheimplementationofthelegislation,whowouldbearthem, and economic and financial tools for recovering costs. Estimates of the cost ofimplementing environmental legislation are provided where these were available from otherstudies.ThemostcomprehensivecostanalysisundertakentodateisbyEDC

4,whilesomeofthe

projects funded under the DISAE programme provide up-to-date estimates for someenvironmentalsectorsandcountries.

SummaryofKeyIssues

Eachsectorendswithasummaryofkeyimplementationissues.

ImplementationFiches

Thepurposeofeachficheistoprovideinformationaboutimplementationissuesspecifictothelegalinstrumentaddressed.

Somesectorsincludea frameworkdirective,whichsetsoutgeneralrulesandprinciples,andaseriesofspecificdaughterdirectives.Thegeneralinformationisnotrepeatedintheficheforthe daughter directives, therefore readers should keep in mind both the framework and thedaughterlegislation.

Thefichesarepresentedinacommonformat,asdescribedintheboxbelow.

Structure and Content of the FichesShortTitle

Eachficheisgivenanabbreviatedtitle.Thisisusedinthefooteroneachpageofthefichetohelpthereaderlocateafichequickly.Theshortformofthetitleisalsousedinthetext.

OfficialTitle

ThefulltitleofthelegalactisgivenwiththeOfficialJournalreference(volume,pagenumberanddate).Keyand/orlatestamendmentstotheoriginallegalactarealsoreferenced.

4EDC, 1997. Compliance Costing for Approximation of EU Environmental Legislation in the CEEC


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INTRODUCTION


SummaryoftheMainAimsandProvisions

Anintroductoryparagraphdescribesthemainaimsofthelegislation.

PrincipalObligationsofMemberStates

Thissectionsummarisestheprincipal legalobligationsonMemberStates(with theassociatedarticlefromthelegislationinbrackets).Theseobligationsaregroupedunderstandardheadingsreflecting thekeystages in the implementation processand,where possible, are listed in theorder inwhich they should be considered for the practical purposes of implementation. Thissectionomitslegalobligationsonotherbodies,forexampletheCommissionitself,andoptionalarrangements.Readersshouldrefertothefulltextofthelegislationforfurtherdetails.

This sectionalso includes cross-references tootherCommunity environmental legislationand,wherespecificallyrelevant,internationalconventionsandagreementsthatshouldbeconsideredin conjunctionwith the particular pieceofCommunity legislation inquestion.Where a cross-reference to another section of the Handbook is appropriate, this is indicated by the sectionnumberinbracketsfollowingthementionoftheassociatedCommunitylegalact.

Implementation

This section sets out the main tasks tobe undertaken to implement the legislation, and keyconstraintsonphasingtheimplementationtasks.

Thekeytasksaresummarisedintheformofachecklist.Wherepossible,thestructureofthetableisbasedonthesub-divisionsofthelegalobligations.However,sometimesthestructureisdeveloped to take accountofadditionalsteps requiredtomeet theobligation inquestion,andother issues raised in the legislation. The key tasks are arranged as far as possible inchronologicalorderofimplementation.

Thephasingconsiderations identify factors affecting the implementation programme, such aswhether thelegislation is likely tobesupersededandwhether the legislationrefers toa fixedprogrammeofevents,aswellasthemosttime-consumingtasks.

ImplementationGuidance

This section brings together the collective experience of Member States to provide generalobservations,examplesofgoodpractice,andlessonslearntinimplementingthelegislation.ThisinformationmaybefurtherillustratedwithcasestudiesfromMemberStates.

Costs

This section provides a qualitative analysis of the costs likely to be incurred throughimplementation of the legislation, forexamplecapitalexpenditure,operationandmaintenancecosts, staff, equipment, etc. Specific informationon costs is given where possible, basedonexistingliterature.Thissectionalsoidentifiestheentitiesonwhichthecostsmayfall,e.g.publicsector,privatesector,stateormunicipalities.

ImplementationExperienceinMemberStates

The implementation issues discussed in the fiches are drawn from the collective experience ofthe Member States. For implementation issues covering the period until 31 December 2002,examples are primarily taken from four Member States: France, Portugal, Sweden and the

United Kingdom.In the present update covering the period from 1 January 2003 to 31 December 2007, practicalexamples of implementation, in terms of legislative and administrative frameworks, have beenextended to additional countries including Malta, Hungary, Denmark and Austria.


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INTRODUCTION

IMPLEMENTATION AND TH E ACCESSION PROC ESS


Implementation and the

Accession Process

1. Overview1.1 Scope of This SectionThissectiondiscussestheneedto takeimplementationissuesintoaccountwhenpreparingforaccession.Itlooksatanumberofimplementationissuesthatarecommontomanydirectivesandgoesontoconsiderhowimplementationplanningcanbeincorporatedintoagovernmentsbroader planning for accession. It also briefly addresses issues common to all Communitylegislationand lawinrelation to theaccessionprocess,andcontainsparticular information inrelation toCommunityregulations.It concludeswithan implementationmanagementchecklistthatgovernmentscanusetotracktheirprogressinimplementingtheacquis.

1.2 Taking Account of ImplementationTheprocessofapproximatingthelegalandadministrativesystemsinthecandidatecountriestothe large and complex body of EC law is a huge task that requires careful planning andmanagementonanongoingbasis.Asdeadlines for implementingcertaindirectivesorcertainprovisionswithin directivesdo not ariseuntilafter the anticipated dateonwhichmanyof thecandidatecountrieswillbecomeMemberStatesitisimportantthatmeasuresproposednowareadequatetomeetthefuturecompliancedemandsthatsuchcountrieswillfaceasMemberStates.

Candidate countries should have in place a framework for co-ordinating legislative andadministrativepracticeacrossdifferentministrieswithaviewtoachievingfullimplementationinlaw and practice. That framework will necessarily incorporate consideration of regulatoryactivities. Ascandidate countries adopt legislationwith a view to giving effect toCommunitydirectivesintheirnationallaw,theyshouldconsiderwhichareasofexistingnationallawwillbeaffectedby thenewlegislationand so requireamendment or repeal.Candidate countrieswillalsoneedtoaskwhatnatureoflegalprovisionsisappropriateintheirnationalconstitutionaland

legal order so as to give effect to Community law in national binding legal provisions. Forexample,wouldaframeworkdirectivebebetterimplementedinthenationallegislativeset-upbywayof primary legislation, and thedaughterdirectives implemented by secondary legislationundertheumbrellaoftheprimarylegislation;orisprimarylegislationappropriateforallsuchdirectives?Furthermore,bearing inmind theprospectof technical amendments to directives,candidatecountriesshouldconsiderwhatparliamentarymechanismshouldbeprovidedinordertoallowforthemosteffectiveadoptionofimplementinglegislationtogiveeffecttosuchtechnicalamendments.


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IMPLEMENTATION AND TH E ACCESSION PROCESS


ImplementationofwholeareasofCommunityenvironmentallawmaycausesignificantchangeinthelawincandidatecountries.Itisimportantthattheimplementationprocessinvolvesasmanystakeholdersaspossiblein the processofdiscussion regarding the paceatwhichchange isintroducedincandidatecountriesandthemannerinwhichitistobegivenlegaleffect,aswellastohowchangesinregulatorypracticearetobemanaged.Inaddition,legislativechangetogiveeffecttoCommunitylawrequirementsmayleadtoadditionalexpenditureacrossthecountryatcentral, regional and local government level, for the regulatory authorities, for industries and

commercialoperations,andfor thepublic.Publicinformationanddiscussionassists ineasingthisprocess,andconsultationon legislativedraftsmayassist inidentifyingmattersofnational,regional or localor sectoral interest as regards the implementation process relating togivenareasofactivity.Inthisway,changemaybemanagedmoreeasily.

Itmay,asaresult,beadvisableforcandidatecountriestoconsiderwhethertransitionalperiodsshould be sought from the Community to avoid significant disruption to particular areas ofindustrial,commercialorsocialactivity.Transitionalperiodsmayenableacandidatecountrytoavoidbeing in breach ofCommunity obligations at an early stageof their existence asnewMemberStates.ItisundesirabletobeinbreachofCommunityobligationsinanyevent,buttheriskoffinesbeingimposedbytheEuropeanCourtofJusticesetsanaddedincentive,asdoestheavoidanceofawardsofdamagesforbreachofCommunityobligations(describedbelow).

Itshould be noted that thereareasignificant number ofECregulations in the environmental

sector.Theselegalinstrumentspresenttheirownproblemsfortheaccessionprocess,andtheirtreatmentmust likewise beaccordedthe same levelofcareasdirectives.Specificcommentsconcerningregulationsaresetoutbelow.

As regards directives, the process of approximation is usually described as involving threeelements: transposition (of legislation), implementation and enforcement. Although thissequentiallistingoftheelementsappearslogicalandstraightforward,theelementsare, infact,dependent on one another. Effective transposition will require, firstly, an understanding ofimplementation and enforcement practices and capabilities (application in practice); and,secondly, that the actual legal text properly takes into account the obligations relevant toeffectiveimplementationandthatitprovidesforrealandeffectiveenforcement.

Anewnationallawwhichsimplyrepeatsthetextofadirectivewithoutensuringthatitisintegrated into thenationalsystem ofenvironmental, legislativeandadministrative law

willprobablybeineffectiveforthispurpose.Suchanapproachmayfailtoimplementinfull the spirit andwordingof the directive. Itmayalso fail tocommunicate to relevantstakeholderstheirrightsandresponsibilitiesaccordingtotheobjectivesandtermsofthedirectives.CommunitylawrequiresMemberStatestoimplementdirectivesinsuchawaythatthenationalimplementinglawisaccessibletothoseaffectedbyitandthatitisclearas to its legal effect. This means, for example, that legislative provisions amendingnational law in a particular area should not be adopted by way of amendment tolegislation covering another area of activity. Likewise, implementation of a directiveaddressingaveryspecificareaofactivityshouldnotbeeffectedacrossawiderangeofpieces of disparate national secondary legislation. Any such opaque system ofimplementationcanresultindifficultiesineffectiveenforcement.

Wheregovernmentalbodiesalreadyhavecompetenceandexperienceinareascovered

byadirective,anationallawtransposingthedirectivethatdoesnottakeintoaccountanyneed toamend these institutionsandprocedures is likely to remainunimplemented inpractice. However, if the new law attempts to change institutional structures withoutcarefulconsultationandplanninginadvance,itrisksbecomingthesubjectofsubsequentdebate about competencies and procedures. The new law may therefore also beunimplementedandunimplementablebecausetheresponsibleinstitutionslacktheknow-how,staffandbudgetstocarryouttheirnewresponsibilities.

A new law setting out a system of governmental responsibilities, such as that onintegrated environmental permitting, needs to contain a clear picture of how theseresponsibilities includingenforcementofthepermitswillbecarriedout.Thetextof


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INTRODUCTION



thenew lawneeds toexpressaclearunderstandingof thenewsystemof institutions,proceduresandresponsibilities.

Asindicatedabove,developmentsinCommunitylawhaveresultedinanemergingandgrowingbodyofrulesastowhenMemberStatesmaybeheldjudiciallyliableforfailurestocomplywiththeirobligationsunderCommunitylaw.Lackofimplementationandinadequateimplementationare examplesofsuch failure. Thesemay not only lead to the impositionofsanctions by the

EuropeanCourtofJustice,includinginjunctionstotakecorrectiveactionandfines,butmayalsoresultinMemberStateshavingtopaydamagestostakeholdersforsuchfailures.

Assuming that the government has a well-planned and well-thought-out legal programme,effectiveimplementationandenforcementwillrequire:

reliabledatacollectionsystems;

effective systems and institutions for monitoring and reporting on emissions andenvironmentalqualityandinspection;

proceduresandtoolsforraisingtheenvironmentalawarenessofindustryandthepublicinordertosecureunderstanding,co-operationandsupportforenvironmentalmeasures;

institutionsandproceduresfacilitatingpublicparticipationinenvironmentalmanagement;

administrative and judicial recourse in relation to (actual and threatened) violations ofenvironmental laws, accompaniedbyappropriate systems ofadequate anddissuasivefines and penalties and including provision for liability under criminal jurisdiction forseriousviolations;

trainingofstaffandaffectedsectorsofsociety;

adequatefundingofimplementingandenforcementinstitutions.

1.3 Planning for AccessionThe accession planning process isdriven by the national programme for the adoptionof theacquis (NPAA). In its environmental chapter, and for each environmental sector and eachindividuallegalinstrument,thissetsout:

thecurrentsituation(transpositionaswellasimplementationandenforcement);

short-termprioritiesinlinewiththeaccessionpartnership;

medium-termprioritiesinlinewiththeaccessionpartnership;

institution-buildingneeds;

estimatesoffinancialneedsintheshortandmediumterm.

TheNPAAprovidesafocalpointfortheoverallco-ordinationofapproximationactivitiesandwillbesupportedattheworkinglevelbyarangeofotheractivitiestoprepareimplementationplansat the directive level. Implementation plans will set out the actions required, draw up thetimetableaccordingtowhichactivitiesaretobecompleted,assignresponsibilitiesandallocateresources.Questionsconcerning implementation deadlinesarisingafter accessionneed tobe

consideredindetail.Inaddition,candidatecountriesshouldbearinmindanytransitionalperiodsprovidedforintheiraccessiontreaties.

TheEuropeanCommissionhasoutlinedanumberofbasicissueswhichneedtobeincorporatedintoapproximationplanningconsiderations5:

environmentalapproximationactivitiesneedtobeintegratedintootherpolicyareas;and

5Commission Communication,Accession Strategies for the Environment: Meeting the Challenge of Enlargement.


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allnewinvestmentsshouldcomplywiththeacquis.

TheexperienceoftheNordiccountriesandAustria,whichaccededtotheEUin1995,andthatoftheCEEcountries,MaltaandCyprus,whichjoinedtheEUmorerecently,demonstratesthatthefollowingmeasuresarevaluableinpreparingforaccession:

establishmentofcross-ministerialworkinggroupstodevelopco-ordinatedapproachestocertainenvironmentalissues;

development of long-term programmes to recruit and train staff for public sectororganisationsineachsector;

useof thenew twinningschemeswherebyenvironmentaladministrative structures inthe candidate countries are matched with corresponding administrations in MemberStatestofacilitatethetransferofadministrativeknow-how.

2. Implementation2.1 General ConsiderationsAccession islikely toresult inmajor alterations to the structure and operation of law for newMember States. It is important that acceding states are properly equipped for the resultantchange.ThisprocessmaybefacilitatedbyfollowingtheguidanceinthisHandbookasregardsthe environmental sector.However, the environmentalsector isjustone areaofpolicy of theCommunity,andsomegeneralobservationsmaybeusefulinensuringthataccedingstatesarepreparedasfullyaspossibleforaccessionasregardstheenvironmentalsector.

Accession is likely to raise constitutional issues in all acceding states. It is important that amechanismofconstitutional status forgivingeffect toaccessionandobligationsonaccessionguarantees the supremacy ofCommunity law over conflictingnationalmeasures. This resultmust be guaranteed whether the relevant EU instruments were adopted prior to or afteraccession,andlikewiseasregardsanynationallaws.SuchamechanismshouldalsoprovideforthefulleffectofallCommunityactsabletohavelegaleffect,andcoverrulingsofthecourtsoftheEuropeanCommunity.

Communitylaw,in furtheranceof theprincipleof legalcertainty, requires implementation tobecarriedoutbywayoflegallybindingprovisions.Therefore,ingeneral,attemptedimplementationofCommunity environmental legal acts byway of government circulars or guidance will notsuffice.Stepswillberequiredinaccedingstatesaheadofaccessiontoensurethatgovernmentcirculars etc.are not the solemeansreliedupon for implementation. It isadvisableto aim tohavethemrevokedandreplacedbybindinglegalprovisions.

Inaddition,it isimportant tonote theneed toensure that implementingmeasuresin lawandpracticecomplywith theprinciplesderivedfromtheEuropeanConventiononHumanRights.There isagrowingbodyof law in this areawithin theCommunityslegal system that isalsoapplicableintheenvironmentalsector.

Practical steps to increase the effectiveness of Community environmental law on accession

includepublicawarenessprogrammesforaffectedindustriesaswellasforthegeneralpublic,andlegaltrainingforpersonswithintheadministration,includingenvironmentalinspectors,andforlawyersandjudges.

This Handbook is predominantly concerned with the implementation of directives. However,there are a number of regulations and decisions addressed within the Handbook. Theseinstrumentspresenttheirownchallengesasregardsimplementationandeffectafteraccession,andsosomecommentsarepresentedinthissectionspecificallydealingwithregulations.

ItisimportanttoensurethatregulationshavetheirfullforceasCommunitylegalinstrumentsincandidatecountriesnationallegalsystems.Regulations,inprinciple,takeeffectonadoptionand


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publicationintheCommunitysOfficialJournal.Theyareofgeneralapplicationthat is,everylegal person can rely on their provisions whether against the state or against otherindividuals/companies.MemberStatesareprohibitedinprinciplefromadoptingnationalrulesinplaceoftherightsorobligationsprovidedinregulations.

CandidatecountriesmayhavenationalrulesrelevanttothescopeoroperationofCommunityenvironmentalregulations.Onaccession,asindicatedabove,itisthetermsoftheregulations

that should,asamatter ofCommunity law,apply in the acceding states.Conflictingnationalprovisions lead to confusion at the national level, may make enforcement more difficult inpractice,andmayleadtosanctionsatCommunitylevelfromtheEuropeanCourtofJustice.

Atthelevelofnationallaw,theimmediatedirectlegaleffect6ofregulationsmaybegiveninthefirstinstancebyameasureofconstitutional statusproviding forthe supremacyofCommunitylaw. Legal certainty is a general principle of Community law. Hence, as indicated above,parallelorconflictingnationalprovisionsmaycloudorseemtocontradicttheimmediatelegaleffecttobederivedfromregulations.Asageneralrule,nationalprovisionsthatapplytoanareawithinthespecificscopeofaregulationshouldberepealed.

Repealing such national provisions may be a very time-consuming and intricate exercise.Accedingstatesshouldalreadyhaveprogrammesinplacetomeetthischallenge.Iftheydonot,suchprogrammesshouldbeputinplaceintheverynearfuture.Referenceshouldalsobemade

inthisregardtoindividualaccessiontreatiesforapplicabletransitionalperiods.To assist acceding states with their obligations concerning regulations, relevant regulationswithin theenvironmentalacquisareaddressed in theHandbook.However,when reading thefichesforregulationsitisimportanttobearinmindthecommentsinthisintroductionasregardsthelegalnatureandeffectofregulations.

2.2 Legal IssuesThefollowingmeasurescanhelpreducetherisksassociatedwithrapidtransposition:

Determine theimplementationstrategiesandstructures first.Whenthe decisionshavebeen takenabout actually implementing andenforcinga law,thendrafting is relativelysimple.

Involvethestakeholders.Asuccessfullawisonethatcanbeimplementedandappliedinpractice.Thus,itneedstotakeintoaccountthesituationandexperienceofallpersonswho will be involved in its implementationoraffected by it in practice. This includesregionalandlocalauthorities,industryandthepublic,aswellasthenationalministriesconcerned.

Adopttheframeworkbeforethedetails.Compliancewiththelawisunderminedifmanylaws are introduced in a short time. It is important to adopt framework legislationestablishing administrative systems and the appropriate fundamental rights andobligationspriortotheintroductionofmoredetailedlegalrequirements,particularlythosethatwill impose aheavyadministrativeburden onthe competent authorities.Suchanapproachalsohelpstogiveadvancenoticeofnewlegalrequirements,whichitselfallowsoperatorstoplanandmakerelevanteconomicprovisionforfuturecompliance.

2.3 The Specific Position regarding RegulationsAbout 10% of EC environmental laws take the form of regulations. Regulations are directlybindinginMemberStatesandhavelegaleffectoverandinplaceofanyconflictingnationallaws.

6 That is, regulations are applicable law in Member States without national implementing legislation needing to be

adopted.


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MemberStatesmay not transpose the provisionsof regulations intonational law, even if theresultantnationallawisidenticaltotheregulation.7

Theconstitutional arrangements foraccession in each candidate country should provide thatregulationshavetheirfullforceasrequiredunderCommunitylawintheircountryonandasfromthedateofaccession.

Nevertheless,Communityenvironmentalregulationsoftendorequirefurthernationalmeasures

fortheirimplementationasregardscertainmattersandsocannotbewhollyignoredaspartoftheapproximationprocessbeforeaccession.

For example,thetypesofmeasuresthatstateshavetoadoptinordertomakeregulationsapply in practice include the appointment of competent authorities to inspect and controltrade inseverelyrestricted chemicalsor inendangeredspecies, thepublicationofguidesandnotificationforms,andthedesignationofnationalsanctionsforviolationsofthelaw.

Withrespecttoregulations,countriesshouldbeawarethat:

Some regulations require the designation or establishment of authorities or bodiesresponsiblefortheirimplementation.Thismaybedonebyadministrativeorderordecree.

Someregulationsexpresslyrequirecountriestospecifypenaltiesinnationallawincivilorcriminalcodes,forexamplefornon-compliancewithECregulations.Evenifthereisnosuchexpressprovision,Community lawmay requireeffective national sanctionsaspartoftheprocessforensuringcompliancewithregulations.Applyingeffectivesanctionsis a general obligation on Member States to make Community law effective in theirterritories.

Hence, accessioncountries should ensure that thenecessary administrative and institutionalmeasuresareinplacebythedateofaccessionandthatanyoverlappingorconflictingnationallawsarerepealed.

Where the EC legislation in an environmental sector comprises a mixture of directives andregulations,countriesmusttakeparticularcaretoensurethatnationalmeasures,includingthoseimplementingdirectives,arefullyintegratedanddonotconflictwithECregulations.

Therearefewersteps required ingeneralto implement regulations thandirectives.Bywayofassistance,thesearesetoutbelow.

StepstoImplementRegulations

1) Identifyanationalcompetentauthorityorauthoritiestoensurepracticalimplementationoftheregulation.

2) Identifywhat legislation (if any) is necessary (e.g. to prescribe sanctions or designatecompetent authorities). Inaddition, identifypossiblenational legislationconflictingwiththeprovisionsoftheregulation,andadoptastrategyforeliminatingtheseconflicts.

3) Establishalegislativetimetable(asappropriate).

4) Prepareadministrativeinstructionsandproceduresfortherelevantauthorities.

5) Consultwithothergovernmentdepartmentsconcernedandwithgroupsaffectedby theregulation (e.g. importersandexporters;major industries;environmental organisations;consumergroups;localcommunities;andtradeunions).

6) Provideadequatestaffandtechnicalresources.

7) Trainstaff.

7 This ban on transposition may also be justified on the basis that attempted transposition disguises the immediate

legal effect of the regulation as a Community legal instrument.


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8) Informaffectedindustrialsectorsandcompaniesastowhatstandardsandtargetswillberequired.

9) Providetherelevantdocuments,formsandcertificationtothegroupsconcerned.

10)After accession, monitor implementation and report to other Member States and theEuropeanCommissionasneeded.

11)Takeenforcementactionasnecessary.

2.4 Institutional Issues2.4.1 Administration

Successful implementation of the environmental acquis depends to a large extent on theadministration. Effective and efficient administrations may be regarded as those having anumberofstrengths,suchas:

clearcompetenciesfortheadministrationofenvironmentalandrelatedlegislation;

clearandefficientproceduresfordecisionmakingandtheimplementationofdecisions;

skilledprofessionalsrangingfromenvironmentalscientists,engineersandecologiststoenvironmentallawexperts;

sufficientstaffandfundingtocarryouttasks;

strongenforcementrightsandcapabilities.

2.4.2 PublicParticipation

TheEuropeanUnionsrecentSixthEnvironmentalActionProgramme(6thEAP)isbasedontheprinciple of shared responsibility, that is, all concerned groups should work in partnership todevelopand implementenvironmentalpolicies andlawsandultimately toachievesustainabledevelopment.Asthe5thEAPhadalreadymadeclear:Theultimateobjectiveistostrikeanew balance between the short-term benefits of individual persons, companies andadministrationsandthelonger-termbenefitsofsocietyasawhole(Chapter3).Thisapproachiscarriedoverinto,andcontinuedin,the6thEAP.

Governments and local authorities can create the conditions that allow the public to play asignificantroleinenvironmentalprotection.Theycanprovidepublicaccesstoinformationabouttheenvironment,conductinformationcampaignstoraiseawareness,andprovideserviceswhichfacilitateenvironmentallyresponsiblebehaviour,suchasseparatewastecollectionandreliablepublictransport.

Non-governmentalorganisations(NGOs)concernedwiththeenvironmentandconsumerissues,trade unions, industryandprofessionalassociationscanallplay an important role inbuildingpublicawareness,inrepresentingtheinterestsoftheirmembers,andinmobilisingpublicopinion.

2.4.3 Enforcement

Enforcingthelawissometimesmoredifficultthanmakingit.Strongenforcementimpliesstrongandcommittedenvironmentalinspectorateswithadequateresources,systemsoffines and penalties, and criminal liability for serious violations. Underpinning theeffectiveness of any such enforcement action arematters such asproviding effectivetraining for inspectors generally and in relation to the specific industrial sectors theyregulate. Inspectors should have adequate and reliablemonitoring equipment. Thereshouldbeeffectiveandtransparentprotocolsandrulesforthetakingofevidenceanditspresentation in judicial proceedings. There should be provision, with respect for dueprocess considerations, for the proper acceptance of such evidence in enforcementproceedingsasproofofthematterspresented.


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It is therefore important todesign regulatory systems thatcanmonitorandcontrol theimplementationoftheenvironmentalacquisinapracticalandcost-effectivemannerandtoensurethattheyoperateasintended.Governmentsareincreasinglyturningtoarangeofpolicy instruments, including economicinstrumentsandincentives, topromote legalcompliance,aswellassystemsofadministrative,civilandcriminalsanctions.

In thisregard, nationalrulesproviding for thirdparties tochallengedecisionsofpublic

authoritiesintheenvironmentalsectorortoparticipateinopenandtransparentdecision-making processes are a vital part of assisting environmental compliance. The sameappliestotheexistenceofnationallegalaidrulesprovidingforindividualsandNGOstobringactionsinrelationtoactualorthreatenedadverseenvironmentaleffectsconcerningthemselves or for violations of environmental rules. Suchnational legal aidprovisionsshouldallowforparticipationinrelevantlegalprocesses.

TheEuropeanUnioncontinuestobeactiveinitspromotionanduseofinstrumentssuchaspublicinformationaccess,sharedfilesandresourcesbetweengovernments,andself-monitoringbyindustrialfacilitiestobringaboutvoluntarycompliancewithenvironmentallaws.TheeffectivenessoftheseinstrumentswillbeenhancedbythenewDirectiveonAccesstoEnvironmentalInformation(2003/4/ECseeSection2).

3. Managing the Implementation ProcessManaging theapproximation processgenerally, and the implementation of theenvironmentalacquis in particular, has meant developing comprehensive and advanced approaches toenvironmental management. This Handbook is intended to assist this work by highlightingcommonapproachesthatwillfacilitatethemonitoringofprogress.

Strongenvironmentalmanagement,forexampleasoutlinedinISO14001,involves:

listing tasks and identifying the key implications for implementation (e.g. the legal,administrative,technological,humanresourcesandfinancialimplications);

prioritisingtasksonthebasisofagreedcriteria;

assigningresponsibilityforaccomplishingtaskstovariousauthorities; identifying cross-sectoral implications and facilitating inter-ministerial co-ordination,

particularlyinrelationtoimplementation;

identifyingdataneededtosupportdecisionmakers;

establishing work programmes and timetables that indicate any deadlines or externaltimeconstraints;and

monitoring and measuring progress both for management purposes (e.g. to monitoraspectsofenvironmentalqualityandtheeffectivenessofimplementation)andtoreporttotheEuropeanCommission.

Strengtheningtheadministrativestructuresforenvironmentalmanagementislikelytoinvolve:

establishingnewinstitutionsorsubstantiallyrestructuringexistinginstitutions;

improvinginter-ministerialcommunicationandco-ordination;

developingregionalandlocalenvironmentalinstitutions;

providingtechnicalinfrastructureandsufficientlytrainedstaff;

designatinganumberofofficialstoparticipateinformalandinformalCommunityworkinggroups;and


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building partnerships with municipal authorities, business enterprises and non-governmentalorganisationstoimplementenvironmentallaws.

4. Implementation Management ChecklistAn implementation management checklist has been prepared to provide an overview of theissues thatneed tobeconsidered inpreparingaplan to implementenvironmentallegislation.Each candidate country should modify the checklist to suit its own institutional needs andstructures.Forexample,thepowersandrolesofregionalandlocalauthoritiesvaryconsiderablyin thecandidate countries,withdifferent implications for thedistribution of competenciesandresources.

Planningimplementationrequiresinformationanddecisionmakingatthreelevels:

for each item of legislation (noting, as accession approaches, the legal position ofregulations);

fortheenvironmentalsector;

forthewholeenvironmentalacquis.

Detailed information is built up from the basic building block represented by each piece oflegislation.This information isrequired toprovideaccurateestimatesof requirementssuchasstaffingneeds,technicalequipment,capitalinvestmentandoperationalcosts.

Atthesectorallevel,itbecomesimportanttoconsidertheinter-relationshipsbetweenlegislationwithin a sector and between sectors. This is necessary in order to prioritise the legislationrequired,rationalisecompetingresources,andidentifyeconomiesofscale.Forexample,withinasectorsomepiecesoflegislationmaybejudgedtohaveahigherpriorityforimplementationbasedonlegal,environmentaloreconomicgrounds.

Thechecklistisdividedintotenmajortasks,eachofwhichisdividedintoaseriesofsub-tasksarranged in chronological orderas far as possible. However, several of these tasksmay beongoingconcurrently,particularlywheretheoverallprogrammefor implementation isrelativelyshort.

Table Generic Implementation Management Checklist for Directives (noting the points made aboveas regards regulations)ACTIVITY RESPONSIBILITY LEVEL

Foreachdirective

Foreachenvironmental

sector

Fortheoverallenvironmental

acquisEnsure Objectives are Clear and UnderstoodObjectivesoftheapproximationprocess

Objectivesofthesector

Objectivesofthedirective n/a

Principalobligationsarisingfromdirectives n/aDefine Responsibilities and Identify Responsible IndividualsOverall n/a n/a Foreachsector n/a

Foreachdirective n/a

Defineclearlinesofcommunication n/a n/a

Followagreedprotocolsoncommunications Prepare a Diagnostic Study of the Current SituationUnderstand the technical issues involved andprepareacomprehensivelistofkeyissuesandstakeholders

n/a


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ACTIVITY RESPONSIBILITY LEVEL Foreach

directiveForeach

environmentalsector


acquis

Catalogueallfacilities n/a

Establish current levels of compliance for allfacilities

n/a

Establishcriteriaforprioritisation Prioritisetheissuestobeaddressed

Prioritisethefacilitiesforcompliance n/a

Evaluate the scope of effort required forcompliance

n/a

Evaluatecurrentpracticesandwherechanges/improvementsarerequired

n/a

Establish PolicyIdentifywhatpolicytoolsarenecessarytoeffectimplementation

n/a n/a

Listpolicyrequirementswithinthesector n/a n/a

Developpolicy Financial ImplicationsDevelop and agree methodologies forcalculatingthecostofcompliance

Estimatecostsforcompliance

Identifyandquantifyexistingsourcesoffunds

Estimateshortfallinfundsavailable

Identify other mechanisms for revenuegeneration

Institutional CapacityClarify current institutional arrangements andresponsibilities

Quantify current staff resources and futurerequirements

n/a

Comparecurrent institutes with those requiredbylegislation

n/a

Develop a proposal for institutional reform toreflecttherequirementsofthedirective

n/a

Compare this directive-level proposal withotherswithinthesector

n/a n/a

Consult with other sectors and comparerespective sector-level proposals forcommonality

n/a

Consult extensively to reach a consensus oninstitutionalreform

n/a

Estimatecostsofanyreforms n/a

Communicate the agreed way forward to allparties

n/a n/a

Prepare a Preliminary Programme for ImplementationDefineinstitutionsandresponsibilities

Proposeaprogrammeandtimescales

Ensure integration between legislation andsectors

Establishpriorities

Presentcostestimates

Identifypotentialsourcesoffunds

Quantifyanyshortfallinfunds


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ACTIVITY RESPONSIBILITY LEVEL Foreach

directiveForeach

environmentalsector


acquisConsult with the Ministry of Finance (MoF) or EquivalentAssesstheself-sufficiencyandsustainabilityofeachsectorforadequaterevenuegeneration

n/a n/a

Estimateshortfallsinfunds n/a n/a Comparefundingrequirementsandsourcesforallsectors

n/a n/a

Identifymulti-sector commonalities in termsofpotential sources of funds or revenue-generationschemes

n/a n/a

Developaproposaltoraiserevenuetosupportallsectors

n/a n/a

Estimatethetrueavailabilityoffundspersector n/a n/a

Developcriteriaforprioritisation n/a n/a

Makerecommendationsforpriorities n/a n/a Establish a Timetable to Develop the Implementation ProgrammeEstablishprovisionalpriorities n/a n/a

Define a timetable for the development of theprogramme

n/a n/a

Consultwitheachsectorontheprogrammeandpriorities

Reviseprioritiesinconsultation

Confirmandcommunicateagreedprioritiesandtimetable

n/a n/a

Define the table of contents for the formalimplementation programme to submit to DGEnvironment

n/a n/a

Prepare an Implementation ProgrammeSummary of the existing situation and currentareasofcompliance

Qualitativeandquantitativeanalysisofareasofnoncompliance

Explanationof criteriabywhichprioritiesweremadeandlistofpriorities

Detailedcostanalysiswithidentifiedsourcesoffunds

Detailedlistoftaskstobeundertaken

Detailed programme showingtargets/milestones

Justification to support all elements of theprogramme

Evidencetoshowthatsectoralandcross-sectorissueshave been addressed within an overall

framework


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List of Abbreviations (Member States)AT AustriaBE BelgiumBG BulgariaCY CyprusCZ CzechRepubliDK DenmarkEE EstoniaFI FinlandFR FranceDE GermanyEL GreeceHU HungaryIE IrelandIT ItalyLV LatviaLT LithuaniaLU LuxembourgMT MaltaNL NetherlandsPL PolandPT PortugalRO RomaniaSK SlovakiaSI SloveniaES SpainSE SwedenUK UnitedKingdom

implementation handbook of environmental acquis

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