Introduction

Background

In 1994, the national government worked out a National Environmental and Nature Conservation Policy Concept that represents an authoritative document, setting guidelines for environmental protection for a period of six years. Among its leading principles belong sustainable development and the regionalization of environmental policy (it allows local and regional governments to stipulate even stricter limit values, environmental requirements and environment pollution fees within certain legal framework).

Municipalities have been recently given a much larger mandate than under the former communist system. Many community services such as water supply and municipal waste disposal became the sole responsibility of municipalities.

But despite the withdrawal of the state from many activities, there was no corresponding wholesale transfer of funds to support these services. Only 35 percent of all collected taxes are re-allocated to the municipalities: most municipalities are consistently running deficits. The money provided by the state for environmental remedy shrinks every year, and the distribution of this money is effected by political considerations and lobbying.

Legal Framework

In December 1995, the new Environmental Protection Act was passed. It fills some former gaps and solves inadequacies of previous environmental regulations:

• The public should be advised of all events and data concerning the environment and public health. Authentic data and professional information should be transferred.
• Environmental Impact Assessment should be made in all cases when human activity concerns the environment, such as establishing any kind of industry.
• Government agencies have the right and duty to measure and control before, during and after industrial (including agricultural) activities if it is necessary by law or civilians' request.
• Organizational structures should be established to represent civilians. Regional Councils have to represent the interest of civilians and NGOs.
• All municipalities should employ environmental protection personnel.
• Government Funds are available for municipalities only in cases where their are no individual environmental budgets available; municipalities are advised to calculate a comprehensive plan for environmental protection.

The following examples of regional and local environmental action plans demonstrate the use of environmental planning as a tool for environmental protection in the transition period between the acknowledgement of environmental problems and the ability to solve them.

Basic Information

Background

Specifically, the program focused on:

• promoting the coordination and integration of the efforts of national, regional and local government and agencies;
• establishing mechanisms for wide-spread and meaningful community involvement; and
• providing training for Hungarian officials, professionals and local residents on practical issues related to municipal and environmental management.

Based upon the watershed of the Danube branch, the selected area for the project incorporates four southern districts of Budapest and 21 settlements located downstream from Budapest. Half of these settlements lie on the environmentally-sensitive area of Csepel Island, between the RSD auxiliary and main branches of the Danube (although the RSD Ecoregion is an environmentally sensitive area - ESA - there is no such legal status for valuable areas in Hungary; in the UK for example, the ESA concept is well defined and used). Legislation for ESA has been already proposed, but has not been passed.

Regional Profile

Numbers of residents of the region's settlements, and their water supplies and waste water treatment availability
Municipality	Number of residents (000)	Number of week-end dwellers and tourists (000)	Households with water supply (%)	Households connected to sewerage (%)
Budapest IX.	50	.	.	.
Budapest XX.	70	.	.	.
Budapest XI.Csepel	60	.	.	.
Budapest XXIII.	20	.	.	.
Budapest districts total	200	.	.	.
Szigetszentmiklós	22	8	96.5	19.4
Tököl	6	0	84.0	76.0
Halásztelek	7	0	85.4	13.8
Szigethalom	10	2,5	97.3	0
Szigetcsép	1,4	0	64.6	0
Szigetszentmárton	1,5	5,5	90.0	0
Ráckeve	9	12	84.9	30.6
Szigetbecse	1	0	68.1	0
Szigetújfalu	2	0,5	90.0	0
Lórév	0,28	0	94.8	0
Makád	1	0	72.0	0
Dunaharaszti	13	2,5	86.2	0
Dunavarsány	1,6	0	31.7	0
Taksony	3	1,7	58.1	0
Délegyháza	1,2	4	66.4	0
Áporka	1	0,7	91.0	0
Majosháza	0,6	1,2	62.0	0
Bugyi	2,5	0	47.2	10.3
Kiskunlacháza	6,6	3,6	77.7	0
Dömsöd	4,5	5,2	81.5	0
Apaj	0,8	0	72.7	0
Communities outside of Budapest	96	47	81.0	13.0

Infrared photography revealed that many shore areas are, in fact, floating bogs. There are only two more examples of this natural formation in Europe, in the Loire and Drava rivers. This rarity of nature, instead of releasing the products of normal metabolism into the water, transforms the nutrients into bio-mass (peat) and stores them, and therefore plays an outstanding role in purification of the water.

There is a big gap between water supply and sewage treatment as the consequence of non-integrated regional development: water supply and sewage should have been developed in a parallel manner. About three million m3 of communal sewage is produced annually, of which only 10 percent is purified: the rest is seeping into the soil from leaking septic tanks. One third of this quantity is generated directly in the hydrogeological protection zone of drinking water sources. Additionally, significant pollution is caused by recreational fishermen. Despite decreased industrial and agriculture production decreasing pollution, it remains dangerously high. Another problem is caused by waste: six unsafe, almost full landfills, are in the area.

The RSD Ecoregion population is approximately 300 thousand, while the communities located outside of Budapest account for about 30 percent of the inhabitants. A significant number of weekend dwellers and tourists (almost 50 percent of the Budapest population) must be considered both in terms of housing and impact on the environment. Many weekend houses and cottages have been built along the RSD branch; due to a lack of regulations, they were often built directly on the shore, preventing access to the water and without sewer connections. Residents believe that improved environment will attract even more tourists and create job opportunities.

Municipal Councils create different committees to transfer some power: there is no Environmental Committee, mainly in the smaller communities; environmental protection is managed by the wider Committee of Settlement Development etc. (according to the new Environment Protection Act, all municipalities have been obliged to employ an environmental specialist since the beginning of 1995). Many smaller municipalities do not run a separate environmental budget; although fines are levied for pollution, only 20 percent of this money is returned to the municipality from the central budget.

NGOs are being slowly established. Some NGOs operate regionally: the Association of Csepel Island and Region Municipalities, Association of Budapest Agglomeration Municipalities, National Fishing Association. Environmental NGOs' interests have sometimes clashed with those of municipal officials or local groups. But more and more examples of cooperation can be observed recently: some municipalities realized the usefulness of joint ventures and finances (more money is available for environmental NGOs activities now). Such co-operative action included tree planting, for example, where one municipality donated trees for another to plant; clean up activities; the Earth Day activities; environmental education at some schools: Environmental Days are held with experts' lectures and excursions to the RSD region; boat trips and regatta are held several times a year to attract the media and the government to the RSD Ecoregion. NGOs' representatives are appointed to the Environmental Committees of the Councils and can participate directly in the decisionmaking process.

Goals of the Project

• Develop a decisionmaking process involving all levels of government for the solution of concrete problems. The procedures adopted while working on the strategic plans will establish the framework for future cooperation.
  Impact: creation of strategic planning processes at local and regional level which involve key stakeholders in a meaningful manner
• Conduct training in the development of promotional materials, such as community profiles and submissions for obtaining public, private or international financing/funding.
  Impact: to obtain governmental funding for the creation of environmental infrastructure and services
• Strengthen the capability of municipalities in the RSD Ecoregion to promote and enhance their economic vitality in an environmentally sustainable and democratic manner.
• Enhance an understanding of the need for, and use of, applicable strategic plans, and provide the necessary capabilities to develop such plans to effectively address municipal development and environmental management concerns
  Impact: Strengthening of capabilities that support the creation of multi-stakeholder strategic planning processes for environmental rehabilitation.

Development of regional and local action plans

Arrangement

In the beginning, the CUI contacted all communities in the given area to solicit their participation in the project. Twenty five communities agreed too take part, each assigning a contact person for the project cooperation. Thus, the RSD Ecoregion was defined as the 21 communities and four Budapest districts which lie within the watershed borders (including largest polluters).

Communities were advised about the basic aspects of the process and results:. a two-year strategic plan with an environmental focus would be established in the region based on volunteer workshops; they would be opened both for the public and for experts. Workshops would be structured according to the main structural elements of future environmental plans:

• values (positive assets and attributes);
• vision for periods of between five and 15 years;
• problem identification (including ranking);
• goals and objectives:
• action plans.

Project Phases

Phase 1 (January-July 1994): Project structure development.

A few official project bodies were established:

• An Advisory Committee (AC) was set up of high-ranking officials from relevant national, regional and local agencies; the major responsibility of the AC was to manage the project and ensure the achievement of its goal and objectives. Financial resources were provided by various Hungarian organizations represented on the AC. Membership of the AC was flexible, in order to ensure that further members could join when the project gained momentum.
• An Operative (Executive) Committee was established from selected members of the Advisory Committee to cooperate with the CUI in providing expertise on the project's planning process.
• The Canadian Urban Institute In-Country Office (Project Coordination Office, PCO) was established to assist the AC. A Canadian advisor assisted local communities undertaking participatory strategic planning processes at the beginning of the project; as the emphasis shifted from local- to regional-level, the office was re-staffed by Hungarian experts supporting this planning process - coordinating the Environmental Regional Plan preparation and involving local residents.
• The Strategic Planning Sub-Committee, consisting of planners who worked in the RSD Ecoregion and planners in the AC.
• The Environmental Technical Sub-Committee to gather and assess information related to environmental problems and propose strategies.
• The Hungarian Ecoregion Office (HERO), established within the City Planning Institute (VATI) and funded by the MoE in order to gradually assume responsibility of the project from the PCO and complete the REAP
• The Regional Objective Work Groups (ROWGs) with the task of working on specific parts of the plan as air and water pollution, sewage, soil, legislation and education

The Project Coordination Office carried out a media campaign, encouraging RSD Ecoregion communities to become involved in the project.

Phase 2 (February-November 1994): Collecting of environmental information.

• relevant ministries (Environment, Industry, Interior and Water Management);
• respective agencies for particular issues (e.g. the National Health Institute);
• available studies;
• mayors and municipal officers;
• results of a questionnaire and workshops.

All contacted institutions were very open to provide available data based on studies or their own expertise. Information related to the condition of the environment in the region was gathered; to be used as a source of information by local people. No further analyses or tests related to the environment were conducted, despite the need in some cases: analysis of the quantity and quality of river-base sedimentation. Regular dredging work ceased in 1990 due to lack of money.Evaluation of environmental data was assisted by a Canadian expert in some cases; summarized in an Environmental Situation Analysis document which was used as background information for local community activities and regional plan workshops. The document included an economic, social, and environmental overview, analyses of land use, environmentally sensitive areas, flood plains, hydrology, vegetation, wildlife, and air quality surveys. The document also helped identify information gaps and recommended further studies and data collection. Subsequently, a Background Report was prepared summarizing all information related to the already begun local strategic planning and the answers of the questionnaire.

Phase 3 (April 94-December 95): Development of options to involve RSD communities and development local strategies.

1. Developing local plans.

Developing local strategic plans is a part of the Regional Environmental Plan development. These LEAPs were based on the results of workshops involving municipalities. The workshops focused on environmental assets and concerns facing their community in particular, and the RSD Ecoregion generally.

The workshops focused on ideas, which were then grouped according to subject; natural, economic and social environment; geographical location; vision for the year 2000; vision for the year 2025; goals and objectives.

Participants then prioritized ideas on the basis of importance, time schedule, logical order of action, or other participants' criteria.

The whole process was facilitated by the PCO, the HERO planners, and occasionally by Canadian guest facilitators. A Community Strategic Planning Manual was prepared by the CUI to assist communities. The Municipal Boards developed a plan, agreeing to involve local residents and provide necessary labor, and finances. The process was launched by the establishment of strategic planning committees comprising volunteers, municipal officers, entrepreneurs, doctors and local celebrities. Membership was not limited.

All interested communities - seven of the 25 RSD communities - participated in and completed their LEAPs. Municipalities include the Csepel District of Budapest, Szigetbecse, Szigethalom, Dömsöd, Áporka, Dunavarsány, and Dunaharaszti. Only environmental issues would be considered in the RSD Environmental Regional Plan. Regional planning was always in sight as a final goal: local plans were developed to provide information related to public opinion. Local plans were approved by respective Municipal Boards.

The first LEAP, developed by municipality of Szigetbecse, served as a model for the others. This plan was not limited to environmental concerns but included other sectors, such as the economy. The LEAP plan contains opinions of citizens structured according to the regional plan (recognition and ranking of local values, short- and long-term visions, identification of problems, goals and objectives, action plan to reach the objectives). Local problems were ranked accordingly:

1. High sedimentation, eutrophisation and overgrown vegetation in back-water;
2. Inappropriate educational system (vocational training does fulfill local demand -- the 10-year education system requested by law cannot be provided);
3. Lack of financial sources;
4. Low rate of employment;
5. Pollution, including litter; neglected vegetation; pollution of drinking water; (essentially septic tank leaks; absence of sewage treatment plant; absence of sewers resulting in street floods;
6. Low security of private property;
7. A landfill almost filled to capacity;
8. Limited environmental awareness;
9. Increased crime.

Szigetbecze's LEAP included an action plan; timetable; budget; partners involved and assigned personnel responsible for coordination. The LEAP was approved by the Board of Representatives; all inhabitants, as well as weekend-dwellers.

2. Public survey

A survey of 1500 questionnaires was circulated. The overall rate of return was very low - only six percent - since the method was quite new and generally the public mistrusts such techniques. Results were summarized in the Background Report that served partly as a document for further public relations. Results were also combined with the Environmental Situation Analysis results, and results of the Regional Planning Workshop that determined environmental regional priorities.

3. Local strategies

Demonstration projects, based upon local strategic plans and results of the workshops, were developed and implemented within the RSD Ecoregion during the project to encourage public involvement at the local- and regional-level. Projects included: tree planting, garbage clean-up along the river, environmental education programs for school children.

The main conclusions of the local workshops underlying development of the regional plan were summarized as:

• cooperation of municipalities is a crucial factor;
• the RSD Ecoregion and Association of Municipalities are accepted as an organizational framework for planning;
• public participation is important in the planning process;
• the water-quality of RSD is a determining factor;
• each settlement recognized its responsibility to solve sewage problems (with the exception of the Budapest Sewage Treatment Plant, a government responsibility);
• the solid and liquid waste problem must be solved;
• a reduction in unemployment is fundamental if the region is to develop.

Phase 4 (December 1994-December 1995): Environmental Regional Plan (REAP) development

A workshop organized by the AC determined environmental assets, concerns, and vision for the RSD Ecoregion, and prioritized concerns to identify critical issues. A draft list of goals and objectives for the region was created.

2. Development of the REAP structure (clarify goals and objectives related to critical issues)

Based on the information contained in this Background Report, a draft of the REAP structure was created by the AC, and submitted to all mayors for comment at the final conference. ROWGs were created to analyze each objective, and develop action plans for regional goals and objectives within their respective territories. These were, in turn, incorporated into the plan.

This phase resulted in a draft of the REAP by VATI planners titled "RSD Ecoregion: Strategic Principals and Regional Development Concepts 1995." It presents a regional strategic concept with the involvement of RSD residents. It provides a vision of the region for 2005, identifies the main environmental problems threatening both human health, ecosystems and residents' welfare, identifies the duties of municipalities and expectations from the capital, and proposes ways of managing some identified problems (Protecting the Natural Environment, Managing Agriculture and Natural Resources, Managing Human Settlements, and Infrastructure and Community Services). The main environmental problems were identified as the following:

1. Increasingly deteriorating water quality of RSD and the connected gravel quarries;
2. Proximity of large, air polluting factories, mainly the Százhalombatta Power Plant and Oil Refinery;
3. Global threat: threatened biodiversity;
4. Arable land (careless agriculture causing soil damage; soil contamination by the Soviet and Hungarian air bases).

These objectives were established to address the top priority problem:

• Establishment of environmentally-friendly sewage system;
• Analyzing the sedimentation;
• Sustainable water management;
• Analyzing the effect of the Greater-Danube on RSD Region;
• Biological cleaning of sewage;
• Transfer of sewage output of South-Pest Sewage Treatment Plant to the Greater-Danube;
• Directing the sewage output of Ferencváros Pump Station into the water current of the Great-Danube.

This draft paper is a supporting conceptual document for the development of the real REAP for the RSD. All chapters end with action proposals. Financial evaluation and analyses of recommended strategies were not included: the implementation plan must be financed by local and national resources.

Detailed REAP for the region could not be prepared because of time restraints.

3. Seminar on financing for local strategies

At the end of the project, a specialized workshop on project implementation financing, attended mainly by mayors and municipal officials from concerned municipalities, was held. Financial experts presented different strategies for the financing of environmental measures.

Conclusions

Achievements

Governmental support

Municipal cooperation

Public awareness

Information base

Weaknesses

Time schedule

Mistakes were essentially due to inexperience when dealing with so many interest groups and a complicated political setting.

Residents' approach

Foreign input

Implementation