Poland
Political, economic and social impacts on environmental protection at the spring of 1994
Political changes
Poland now has a young, evolving democracy. In this new system governments, businesses, non-governmental organizations and individuals are searching for their roles. A civil society is developing and where the State government was once responsible for decision-making, now regional and local governments, industrial and trade lobbies, non-profit groups, and private citizens are demanding that their interests be accommodated in the formulation of new policies and laws. These changes effect the environment in many ways, for better and worse. The move toward democracy has many positive effects on environmental protection. Citizens are now able to legally organize themselves into interest groups and to act toward achieving common goals. These groups, often in cooperation with the media, uncovered and publicized the true nature of environmental problems in Poland and are now engaged in efforts to solve those problems. Local governments have received new powers and obligations and are playing an increasingly active part in environmental protection. New, more effective laws and policies have been enacted, and the legal system is providing new opportunities for protecting the environment. Another political change which is having, and will increasingly have, positive impacts on environmental protection is Poland's progress toward joining the European Community. The process has already begun and Polish laws and standards will be harmonized with European directives.
The political changes have also, however, resulted in new challenges to environmental protection. Many of the experts discussed how Poland's environment is suffering because some politicians are more interested in advancing their own careers than in helping to formulate sound public policy. It was also noted that many political and governmental leaders are entirely concerned with other issues and that environmental protection receives too little attention. Indeed, in the face of various economic and social pressures the environment is virtually off the political agenda and the Ministry of Environment (full name: Ministry of Environmental Protection, Natural Resources and Forestry) is recognized as one of the weakest Ministries in the government. The situation is made worse by inadequate cooperation and coordination among the various State Ministries. Furthermore, with frequent changes in the ruling government coalitions, Poland has had four different Ministers of Environment in the last three years, making consistency in policy and leadership very difficult. Certain new, more effective environmental laws are also remain to be passed and progress in this area has been hindered because of the frequent changes in Parliament.
Economic changes
The profound economic changes of the past few years in Poland have also had great impact on environmental protection in the country. Market reforms have included the removal of price controls for raw materials, the elimination of State subsidies to producers, privatization of industries, international competition and foreign investment. The basic result, as noted by several of the experts, has been that "many of the most inefficient producers, which were also usually the worst polluters, have been shut down." Producers now have to be more conscious of environmental issues from start to finish of the production cycle. With the lifting of price controls manufacturers must pay much more for their raw materials. The combined effect of competition and the elimination of State subsidies has caused producers to use resources much more efficiently in attempts to become profitable. Foreign investment has added to competition as well as made new methods and technologies available for production systems and environmental protection. Privatization has largely separated the State from the production sector, enabling it to truly regulate manufacturers and their environmental impacts. With the government in this new role, it is now able to effectively use various economic instruments, such as pollution fees and fines, which compel producers to make investments in environmental protection, as well as generate funds for the governments to make environmental improvements themselves.
The experts noted that market reforms have also had some negative effects on environmental protection. With increased competition and higher production costs there are strong incentives for producers to cut costs wherever possible. In some cases this results in manufacturers foregoing the expenses of environmental protection and externalizing such costs onto society. There is also concern that with the pressure to privatize State enterprises environmental concerns are ignored or inadequately dealt with by the responsible State authorities. A few experts also noted that some foreign investors, having little vested interest in Poland, are only concerned about maximizing their profits and disregard matters of environmental protection to the extent possible.
Social changes
The considerable social changes which have taken place in Poland over the past few years are closely related to the economic and political changes mentioned above, and like them, are having both positive and negative effects on the environment. The elimination of price controls and high inflation has created a situation in which many consumer goods now have Western, or near Western prices, while salaries remain low at Eastern standards. With market reforms driving the closure of many large industrial facilities, unemployment has increased dramatically. According to all of the experts interviewed, it is now one of, if not the, dominant issue on the social, economic and political agendas. As a result, other important issues, such as the environment, are receiving inadequate serious attention. The overriding concern of many citizens and decision-makers alike is now economic security. Naturally, this has many effects. Citizens, while expressing concern about the environment, say that they simply cannot afford to sacrifice money or time on behalf of its protection. Several of the experts noted that many government officials and politicians, at various levels, have made "economic growth at all costs" their objective. In such an atmosphere the pro-environment lobby is having difficulty in convincing decision-makers and the general public that the health of the economy and the health of the environment are inextricably linked. It is true that with the advent of democracy, the pro-environmental activities of NGOs and local governments have increased substantially. These groups, as well as private citizens, are taking advantage of the new freedoms and opportunities to express their concerns and to participate in policy-making. The pro-environment lobby remains, however, relatively weak in comparison to other interest groups such as labor unions and the trade and industrial lobbies. This situation could be improved, though, through better cooperation within the environmental protection sector. Many opportunities exist for NGOs and governments to cooperate, and they should do so to promote the importance of environmental protection within the policy-making arena and society generally.
Assessment of environmental assets and damages
Natural capital
In spite of its environmental problems, Poland does have areas of great natural value, some of which are unique on a European scale. Nearly every expert participant discussed the importance of Poland's "Green Lungs" area in the north-east region of the country. This area, largely undeveloped and free from industry, contains numerous lakes, streams, forests and Poland's healthiest environment. The area has been the focus of a sustainable development project which also includes neighboring Lithuania, Belorussia and Ukraine in an attempt to protect the "Green Lungs of Europe." A plan for truly sustainable development in this region is vitally needed at this time as the pressures of economic growth threaten to exploit the areas' natural resources in environmentally damaging ways. Other valuable natural assets which were mentioned include the wilderness areas of south-east Poland, the lakes region in the north-west, and the many national parks and other protected areas located throughout the country. It was also noted that Poland still contains areas where the soils are very clean and for the most part free from chemicals and artificial fertilizers, thus considerable potential exists for producing healthy foods for domestic consumption and export.
The experts also described other types of assets, such as human resources and institutional mechanisms, as being important for environmental protection in Poland. The maturing NGO sector and highly skilled environmental economists, engineers and other professionals were listed as valuable assets. Various institutional mechanisms were also identified as significant, such as Poland's extensive financial instruments for environmental protection and the growing use of environmental impact assessments.
Threats to economic development, health and living conditions
Many of the experts described the environmental threats to economic development, health and living conditions as being closely inter-related and difficult to separate. Indeed, environmental threats to economic development are also likely to adversely effect human health and living conditions, while serious health threats clearly hinder economic development and threats to living conditions often negatively effect health. Nevertheless, certain environmental problems were identified as specifically impacting these individual subjects.
Threats to economic development include polluted surface waters, the dropping groundwater table, acid rain, accumulated toxic wastes and certain geographic regions or "hot spots." Polluted surface waters and diminishing groundwater supplies were perhaps the most often mentioned as having clear effects on economic development. As demand for water grows, supplies wane and wasteful use continues. One expert commented that "in Poland we have to spend a great deal of money and time simply securing clean water," while another noted that "in many cases the water is polluted beyond imaginable standards." Acid rain, with its devastating effects on the health of forests and soil was also listed as an obstacle to economic growth. The tremendous costs of dealing with accumulated toxic wastes was noted by one expert, while several described the Silesia and Black Triangle regions as serious threats.
Several human health threats were also identified. Chief among them were air emissions of NOx, SO2, and particulate matter from coal-burning home furnaces and local boilers. Exposure to heavy metals was also mentioned, as were low quality drinking water and food contaminated by air and soil pollution. Another health threat mentioned by many of the experts, one which is rapidly worsening, is that of exhaust fumes from automobiles. Health threats were noted as being especially dangerous for infants and children. In certain areas of Poland, the negative consequences of poor environmental conditions can be seen through the low birth weights and high mortality rates of infants.
The threats to living conditions overlap considerably with the threats to health. The most mentioned disamenities were low emissions and the surging increase in automobile use. As one expert explained, "city centers all around Poland are in intolerable states because of emissions from low stacks and autos." Living conditions in urban areas are further lowered by excessive noise levels, with figures reaching 80 dB in some city centers. Other factors reducing the quality of life in Poland are poor land-use planning which results in industrial facilities being located in the middle of residential areas, and "landscape pollution" in the form of huge, ugly housing blocks which separate inhabitants from the earth.
Environmental hot spots
Two geographic regions of Poland were identified by the experts - Silesia and the Black Triangle - as being environmental "hot spots." These areas are in such poor environmental condition that their very existence threatens economic development, human health and living conditions. The Silesia region, located in south-west Poland, has suffered severe environmental damage from numerous causes: air, water and soil contamination from out-dated industry; low emissions from coal-burning furnaces; and water pollution and toxic wastes from mining. The so-called "Black Triangle," part of which is also in south-west Poland, has been devastated by acid rain caused by emissions from industrial sources in Poland, the Czech Republic and especially Germany. Economic losses in this area have been extensive due to thousands of hectares of forest being killed and agricultural areas rendered unusable.
Priority environmental problems
Air and water
Air and water quality were the problems most often mentioned by the expert participants. Low emissions of SO2, NOx, and particulate matter from coal-burning home furnaces and local boilers are a special priority, as are industrial emissions from out-dated facilities which contribute to acid rain and heavy metals in the environment. Transboundary air pollution, primarily from Germany and the Czech Republic, is another significant problem, especially regarding acid rain. One expert explained how the acid rain problem also exacerbates water problems by denuding forests and accelerating water runoff thus further lowering water reserves. The problems of diminishing water tables, and polluted surface waters were also noted as priority issues. Poland's underground water supply is very limited and diminishing, while only about 1% of surface waters, widely polluted by domestic, industrial and agricultural sources, are fit for drinking. The effects of these problems, both air and water, are far-reaching and include definite impacts on economic development and human health.
Waste, traffic, and energy
Following air and water, problems related to waste, traffic and energy were most often discussed by the experts as priority issues. Waste, both municipal and hazardous, was cited as a growing problem in Poland. The situation is aggravated by the influx of disposable packaging from the West and the lack of adequate management facilities. It was reported that waste segregation and recycling is not very common and, instead, the less environmentally friendly option of waste incineration is being promoted in some cities as a solution. The tremendous increase in automobile use was also mentioned by some of the experts as a serious and worsening problem. Catalytic converters are not required in Poland and, while heavily polluting old cars remain in use, the number of new cars soars. The energy sector was another issue listed as needing priority attention. With poor quality fuels, and inefficient production, distribution and consumption systems, this sector adversely effects air, water and soil.
Major environmental concerns of the public
A variety of issues were mentioned by the experts as being major public concerns, however, the most common response was that citizens are mainly interested in whatever the local "hot issue" is that most directly effects them. Very often that issue is something effecting human health such as drinking water quality, urban air pollution, or food contamination.
Critical steps to start or continue environmental improvements
Management and administration
One expert discussed how a new, integrated approach to environmental protection is needed. This new approach should avoid focusing narrowly on specific media (i.e. air, water, soil) or sectors, and should involve all segments of society - governments, businesses, and citizens - in being responsible for environmental protection. Furthermore, it is necessary to better integrate environmental concerns into the policies of other sectors (i.e. finance, transportation, industry). Also needed are more clearly defined responsibilities for the various institutions charged with environmental protection. This is especially true as responsibilities for environmental protection increasingly shift to local and regional authorities. This shift in obligations creates new challenges for local governments but also allows them greater control in addressing the problems with which they are directly confronted in their territories.
Some of the experts explained that existing cooperation within the State government is inadequate, especially between the MoE and the Ministries of Agriculture and Industry. Some progress has been made, however, regarding the privatization process as an Inter-Ministerial Unit has been established to consider environmental issues related to ownership transfers. It was also noted that certain skills and know-how have improved considerably at the government level with the help of foreign assistance and that this process should continue.
Enforceable environmental policy and law
According to most of the experts Poland's environmental policies are generally good. The official Environmental Policy was approved by the Government and Parliament in 1991 and is based on the concept of sustainable development. Recently a new office for environmental policy was established in the MoE. Improvements are required, however, in order to make these policies more practical to implement at the regional and local levels. While many of the experts discussed the need for certain legal improvements, such as in the areas of water, waste, emissions trading, and liability, an emphasis was clearly placed on the critical need to improve enforcement. Poland's environmental laws, with some exceptions, are considered as rather good. Enforcement, however, is far from ideal. Monitoring is also insufficient. Poland has a State Environmental Inspectorate, however, in the words of one expert, "where it once was a lion without teeth, it is now a set of teeth without the lion." In other words, resources committed to enforcing environmental laws are inadequate. The laws themselves sometime contribute, however, to difficulties in enforcement. One expert explained that some of the laws are very rigid and lack the flexibility necessary to facilitate their execution.
Expertise and public support
Education and training is needed for many segments of society, including the youth, environmental professionals, politicians, and workers. The need for improved public education and participation was the critical step most often mentioned by the experts. Environmental education has been introduced into some professional schools but remains largely absent from official primary, secondary and university curriculum. One such effort to address this need is Poland's National Environmental Education Center. The Center, supported by the EC's PHARE program and the British Know-How Fund, is working with local authorities and NGOs to promote and expand environmental education throughout the country. These efforts are crucial as most experts agreed that environmental awareness and concern are simply too low in all segments of society. The mass media could and should play a more positive role in addressing this issue as well. Full access to environmental information is an essential element for these improvements to occur and also to help build a strong pro-environment lobby which is capable of mobilizing effective public pressure for environmental protection. Such a lobby is especially needed at this time as mass marketing and advertising increasingly promotes environmentally harmful goods and lifestyles.
Economic and technological resources
Taking a wider perspective, one expert stated that fundamental improvements in the strength of Poland's economy are critical before environmental protection investments can reach satisfactory levels. Increased financial resources were often reported as necessary for significant advances in environmental protection. One expert identified the priority problem as that of restructuring the entire economy and selecting appropriate new technologies to be used in that process. A variety of modern technologies are needed for both production and pollution control, however, such technologies are usually very expensive and one expert reported that the capital required to purchase these technologies is also very costly. (Interest rates on loans are often prohibitively high.) The establishment of new financial mechanisms, such as tax incentives, would help to encourage new investments in technology. Alternative energy and hazardous waste management technology were mentioned as being very necessary forms of technology. Some environmental services are beginning to be used now in Poland. EIAs are becoming more commonly used and there is capacity within the country to conduct environmental audits.
Driving forces for environmental improvement and degradation
Market reforms
Market reforms are having great impacts, both positive and negative, on the state of Poland's environment. They have eliminated the most inefficient production, which was also usually the worst polluting, and forced more efficient use of resources generally. Now largely separated from the production sector, the State is able to act effectively as a regulator of producers and their environmental impacts. The reforms, however, have caused economic recession and heretofore unknown unemployment. This crisis has created a mentality of "economic growth and security at all costs" within society. The higher production costs and competition brought on by the reforms have led some producers to engage in money-saving practices in which environmental costs are externalized onto society. Additionally, the drive for profits fosters short-term thinking in which environmental investments having long-term benefits are often foregone.
Democratization
Political changes occurring since the transition to democracy are also having significant effects on Poland's environment. Public participation in decision-making of all kinds, including environmental, is increasing greatly as citizens and citizen organizations become more active. Aiding this process is freer access to information. The political reforms have had their negative effects as well, however. Some of the experts noted that many of Poland's politicians are inexperienced and pre-occupied with political power struggles rather than with devising much needed new public policy. Furthermore, as is the case in most other segments of society, the thinking and behavior of many government and Parliament decision-makers are now dominated by short-term objectives.
Western lifestyles
The hierarchy of values is changing in Polish society, with the popularity of western lifestyles emphasizing material consumption growing tremendously. As a result of open borders and aggressive marketing by western and domestic firms, Poland is being flooded with one-use packaging and environmentally harmful products, automobiles being a prime example.
Emerging lobby groups
Interest groups of various sorts are coming forth to participate in decision-making processes and to lobby for their particular concerns. The pro-environment lobby, including NGOs, governments, and private businesses, is growing in size and capacity. This lobby is improving public awareness and concern for the environment, managing and protecting valuable natural resources, and promoting environmental considerations in policy-making. Unfortunately, however, the pro-environment lobby remains weak in comparison with other interest groups, such as trade unions and industrial lobbies. These groups are better organized, have well-defined constituencies, and more resources. Furthermore, the pro-environment lobby has thus far failed to persuasively demonstrate to decision-makers the linkage between the long-term health of the economy and the health of the environment.
Economic instruments and independent local governments
Poland has established a wide variety of highly effective economic instruments for environmental protection. The extensive system of emission fees and fines, as well as new institutions such as ECOFUND (Poland's debt-for-environment swap mechanism), are now playing significant roles in protecting Poland's environment. Another influential development has been the establishment of independent local governments. These now have new opportunities and responsibilities for environmental protection. Some of the experts explained how certain local communities have diligently pursued environmental improvements, while others, unfortunately, have shown little interest or a lack of capacity to do so.
Integration of environmental protection and economic development
Obstacles to integration
The many obstacles to the implementation of environmental policy, and to the integration of environmental and economic policy in Poland are closely related to the political, economic and social changes occurring in the country at this time. Several of the experts explained that in the youth of its democracy some of Poland's politicians and government officials are inexperienced or simply do not understand the true importance of environmental issues. One expert explained that the officials know that they do not want to be like the previous system, but they do not know what they do want to be like. Furthermore, communication and cooperation amongst the political parties, or between the different government ministries are sorely lacking and such a situation is not conducive to the development of sound public policy of any kind. Additionally, in such circumstances politicians and government officials are strongly influenced by well-organized lobbies promoting their own priorities which generally are not environmentally friendly.
Various economic factors are also posing obstacles. For one thing, there are simply inadequate funds available for environmental protection. Secondly, the market reforms have helped the short-sighted mentality of "profits now" to become widespread in Poland. This mentality, effectively promoted by a variety of lobby groups, perceives environmental investments (usually having long term benefits) merely as drains on profits.
Social circumstances also contribute to the above-mentioned obstacles. The State government, NGOs, businesses, and citizens are trying to define their new roles in Poland's evolving society. The pro-environment sector, which includes representatives from all of these groups, now must play a more significant part in providing the vital public service of environmental protection. Currently, however, they are unable to sufficiently fulfil this role. The pro-environment sector has thus far been unable to convincingly demonstrate the inseparable link between the health of the economy and the health of the environment to politicians, government officials, business leaders and the general public. Especially to convince politicians and government officials this requires the effective use of economic arguments describing the true costs and benefits of various investment options, including those for environmental protection. Such arguments have not been sufficiently used to this point. Among the results are the low priority placed on the environment by virtually all segments of society, limited public pressure for environmental protection, poor enforcement of environmental laws and policy, and further exploitation of the situation and environment by profit motivated interests.
Existing and proposed measures for improving integration
The concept of sustainable development is often discussed in Poland, and appears in some official policies such as the National Environmental Policy of 1991 and the Forest Management Policy of 1990, yet few concrete examples actually exist. The most often mentioned example was that of the "Green Lungs of Poland," a project whose specific goal is sustainable development for the north-east part of the country. The project has been officially backed by a coalition of State, regional and local governments, and the expanded concept of a "Green Lungs of Europe" has even been supported by the neighboring countries of Lithuania, Belorussia and the Ukraine. The project is in the beginning stages, however, and its implementation remains to be seen. Some of the experts noted that while examples of sustainable development on a national scale are hard to find, such examples do exist at the local level, and that it is here where the greatest potential for actually implementing the concept lies. Also mentioned were some of Poland's National Parks, with their new management philosophy of involving the local community in practical but sustainable use of the parks' natural resources.
Poland makes use of the polluter pays principle and has one of the most well-developed discharge fine and fee systems in all of Europe. The various forms of "polluters pay" in Poland mentioned by the experts include: private environmental protection investments made by firms themselves; pollution fees and fines paid by enterprises into various government environmental protection funds; user fees for environmental services (i.e. water treatment) and the exploitation of natural resources (i.e. timber harvesting and mining); and the published list of the "80 worst polluters" in the country. Some experts explained, however, that polluters still do not pay as much as they should, as some receive special privileges and the fines do not reflect the true costs of the environmental damage incurred.
Several measures have been proposed or recently implemented in Poland to make improvements in the areas discussed above. A few of the experts discussed the success of a demonstration project using tradable emissions permits. The project, however, cannot be expanded at this time because there is no legal authority to do so. Other recent developments include the establishment of an Inter-Ministerial Unit to deal with the environmental ramifications of privatization, and the functioning of the Environmental Impact Assessment Commission, which assesses the environmental impacts of certain large investment projects in the country. There have also been proposals to establish national and local Sustainable Development Councils, similar to that which resulted from the Rio Conference.
Financing environmental improvements
Poland has several very effective financial mechanisms for environmental protection. Chief among them are the National, Provincial and Local Funds for Environmental Protection, which are financed by the various pollution fines and natural resource user fees. Poland also has the innovative ECOFUND, a foundation established to manage funds acquired through debt-for-environment swaps with a few of the Paris Club countries. Additional mechanisms include the general Polish State Budget, and the Environmental Protection Bank, which provides preferential loans for environmental investments. As mentioned previously, Poland has had success with tradable emissions permits, and there are various plans for product taxes (according to the environmental costs associated with goods) and environmental liability insurance. One expert also noted the need for economic incentives for the import of environmentally friendly technology.
Poland spends about 1 billion USD annually on the environment (about 1% of GNP). Foreign assistance, while amounting to only about 5% of this total, plays an important catalytic role in launching projects and developing institutional capacity and expertise. The experts described a diversity of environmental problems which could be solved using domestic (Polish) resources, as well as problems that would require foreign assistance. Most of the experts realized, however, that given the very limited nature of foreign assistance the large majority of environmental problems in Poland will have to be solved using Polish resources. Some of the experts explained that it is a matter of time. With the help of foreign assistance, some of Poland's environmental problems can be solved more quickly than without assistance.
International cooperation
CEE-regional cooperation
Cooperation within the Central and Eastern European region does exist, but it appears to be rather limited. Some of the experts even noted that they could not identify any significant examples. Others cited cooperation between Poland, the Czech Republic, and Germany regarding the "Black Triangle," with the Czech and Slovak Republics in the "Silesia Project," with Slovakia and Ukraine concerning the Carpathian Biosphere Reserve, and Lithuania, Belorussia and Ukraine in connection with the "Green Lungs of Europe" project. The experts identified a number of environmental problems requiring regional cooperation. Often mentioned were the problems of cleaning up the Baltic Sea and implementing sustainable development in the "Green Lungs of Europe" region. These issues are regional in scope, requiring regional cooperation, and far more resources than Poland alone is able to contribute.
Western assistance
There are many cases where western assistance has contributed significantly to environmental protection efforts in Poland. Numerous capital investments, such as water treatment facilities and air pollution control technology, training in the areas of environmental management and methodology, and NGO development programs are examples of productive assistance provided by a wide range of western countries and international institutions. This assistance was described as very helpful in establishing the foundations for sound environmental protection programs and for starting much needed advances in technological capacities.
Many of the experts also cited examples where western assistance has not been as effective as it could be or has even had negative effects. One such example was Poland's new forest management program, sponsored by the World Bank. This program was widely criticized by NGOs and some forestry experts for promoting unsustainable harvest levels and requiring the purchase of heavy western equipment which may not be suitable for Polish forests. Other criticizms were aimed at western firms promoting their environmentally unfriendly goods and technologies which have in some cases been banned in the west (i.e. pesticides) or have simply fallen out of public favor (i.e. incinerators). Many of the experts also explained how much of the "assistance" is actually consumed by the donor countries themselves, for example through donor country experts performing endless feasibility studies while being housed at Poland's most expensive hotels. Environmentally harmful lifestyles are also sometimes being promoted in the name of "assistance" by some politically motivated foreign agencies as well as international financial institutions.
The experts also offered suggestions as to what forms western assistance should take in Poland. Most of the experts agreed that while feasibility studies may be essential elements of project planning, investments leading to actual environmental improvements are needed at this time. Western assistance in the form of certain types of expertise, especially in the areas of modern technology and environmental management methodology, would also be very helpful. The need for new environmental technologies was also noted by several of the experts. Other issues discussed as requiring international cooperation were the restructuring of Poland's energy sector, biodiversity protection, and dealing with the growing waste management problem. Many of the experts stressed that assistance should take the form of cooperative efforts or joint ventures in which Polish experts and Polish resources play significant roles, and it was reported that this is indeed occurring. One such mechanism which was favorably mentioned as an effective form of assistance was Poland's debt-for-environment swap foundation - ECOFUND. On a more fundamental level, some of the experts mentioned that improvements in environmental protection would be facilitated by strengthening Poland's economy. Western countries could contribute to this by eliminating various trade barriers existing against Polish goods, by supporting foreign investment in Poland which would share some of the burden of environmental improvements, and assisting Poland's industrial restructuring.
Interest groups in environmental protection
Poland's National Government
The various levels of government were most often mentioned by the experts as having the largest impact on environmental decision-making, both to the environment's benefit and detriment. Despite the trend for authority to shift to the regional and local governments, Poland's National Government remains an important player in the environmental arena. Considerable decision-making responsibility is still in the hands of the State, as are certain important institutions like the State Inspectorate for Environmental Protection. The diminishing role of the State was, however, also listed as a detriment to environmental protection in Poland. According to some of the experts the National Government is weakening and becoming increasingly susceptible to the influence of powerful business interests which often place a low priority on the environment.
Regional and local governments
As mentioned above, decision-making authority is steadily being transferred from the State Government to regional and local governments. In this situation local and regional officials are increasingly charged with environmental management and protection responsibilities. It is at these levels that environmental policy is being implemented, and it is here that permits are issued, standards negotiated, and facility sitings approved. The growing significance of local and regional governments brings mixed blessings for the environment, however, because while some governments give environmental issues a high priority, others simply do not.
Business interests
Along with governments, emerging new businesses, industrial lobbies and trade unions were most often mentioned as having great impact on environmental decision-making in Poland. On the one hand this is a natural result of the democratic and market reforms taking place in the country. On the other hand, however, the influence of business interests has strengthened markedly because of the current pervasive public concern for economic growth and employment opportunities. In such a social atmosphere, the environment has become a very low priority and business interests are capitalizing on this by influencing decision-making processes to their benefit. The negative environmental effects are multiple: businesses resist environmental protection measures first of all because they are able to, and secondly because they are viewed merely as something reducing profits; trade union and industrial lobbying efforts keep precious resources flowing to inefficient sectors badly in need of restructuring; and this in turn hampers the mobility of labor and capital which could be better utilized in other areas, including environmental protection.
The media, environmental NGOs, and general public
Like Poland's political and economic systems, its media, environmental NGOs, and private citizens are also in a period of transition. Their roles are evolving and expanding, and yet their potential remains far from fulfilled. The media was acknowledged as potentially having strong influence in the environmental decision-making arena, however, it was criticized for sometimes being inconsistent and unprofessional. Environmental NGOs and the general public were noted for their currently weak impacts on environmental decision-making and for the need to strengthen their roles. Many of the NGOs are fully aware of their insufficient influence and are very actively trying to improve their skills and capacities. While environmental concern throughout society is relatively low, NGOs, interested individuals and some government offices are working diligently to improve the situation.
REC * PUBLICATIONS * STRATEGIC ENVIRONMENTAL ISSUES 2 * POLAND
