Romania
Political, economic and social impacts on environmental protection at the spring of 1994
Political changes
The political changes of recent years have had some distinctly positive effects on the state of Romania's environment. With the move towards democracy people now have greater freedom to express their concerns about environmental problems and to demand government action toward solving them. Citizens now have the right to organize themselves and environmental NGOs have been established. Some pro-ecological political parties were also formed, and they were successful in winning some seats in parliament during the 1990 elections. (One expert stated, however, that these "green" parties failed to win widespread support because they did not adequately include other important social issues in their programs.) Another positive effect has been that environmental protection has become institutionalised with the establishment of the Ministry of Environmental Protection (in late 1989) and other environmental institutions. Other benefits arise from the new possibilities for international cooperation and the exchange of information and experience associated with such opportunities.
Unfortunately, the political changes have had serious negative effects on the environment as well. With the collapse of the previous political system instability and uncertainty have emerged. Frequent elections and new governments in the past few years have resulted in a continuous turnover in key decision-making positions which led to a lack of consistent policy. Many of the interviewed experts also explained how the old laws are simply not adequate for the new circumstances, but that sorely needed new laws have not been enacted. For example, the lack of proper land-use planning laws has encouraged the chaotic development of all sorts of residential and commercial buildings, putting a blight on the landscape and damaging the environment. A growing disrespect for the rule of law in general has led to various abuses of natural resources, with increased wildlife and fisheries poaching and illegal tree cutting being mentioned by a few of the experts. In such conditions the existing regulatory offices have little real power to enforce the laws. Political power struggles also hinder the development of needed laws as the politicians are often more concerned about elections than public policy.
Economic changes
Economic changes have had major impacts on environmental protection, and indeed on society as a whole. Like in other CEE countries, the market reforms in Romania brought significant reductions in heavy industrial output and thus a reduction in air and water pollution from this sector was generally experienced. International trade was also noted by one expert as having the positive effect of making modern, more environmentally friendly, technologies available now in Romania. Privatization has also had impacts. It was noted that property ownership is sometimes unclear and thus working of lands for agricultural production has diminished. One expert mentioned that with privatization, property owners are also beginning to appreciate how contamination diminishes the value of their property, and thus some owners have begun to pressure polluters for compensation. It was noted, however, that the wider effect of privatization has been very minimal because the number of enterprises and properties actually privatized has been very low. Privatization will definitely play a more important role in the future.
Indeed, the experts did not cite many positive effects of the economic changes on the state of the environment. Negative effects were much more commonly described. There has been a general collapse of the economy due to closing markets (of the former Soviet Union and Yugoslavia) and non-competitiveness of some Romanian industries. The dire state of the economy has created a situation of chaos. There is little to no monitoring or regulation of industrial activities and the pressure to produce as cheaply as possible is strong. In such circumstances the environment often suffers. The grave financial situation has also resulted in a much lower budget for environmental protection expenditures. One expert reported that currently less than 0.5% of GNP is devoted to environmental protection, thus pollution abatement equipment goes without being repaired and needed new technology is not purchased. At the same time, with the national borders being opened for trade, the amount of solid waste has increased, and the number of second-hand automobiles in use has risen, adding to air pollution problems.
Social changes
The political and economic reforms have led to substantial social changes as well. The possibility now exists for the public to influence governmental decision-making, and a citizen environmental movement has developed. Improved access to government information and the freedom to organize and to take action have resulted in the true, very poor state of the environment being discovered and publicized. In some areas of the country, especially where the environmental health effects have been acute and well-documented (i.e. Baia Mare and Copsa Mica), there have been dramatic increases in public awareness and pressure regarding environmental issues. The environmental movement has even succeeded in placing representatives in the government administration and parliament. It was mentioned, however, that the impact of the citizen environmental movement remains much too small to sufficiently address the many serious problems.
The social changes have also had adverse impacts on the environment. As already mentioned, the profound political and economic reforms have created instability and insecurity in the society. Economic changes have resulted in a serious economic decline. The general population has suffered from this and many people now struggle to meet their basic needs. Poverty is increasingly driving people to exploit their natural surroundings for subsistence purposes and economic gain (uncontrolled commercial development and illegal hunting, fishing and tree cutting were listed by the experts as examples). Under these conditions the environment is simply off the agendas of most people, including politicians and government officials. Citizens are pre-occupied with securing their economic welfare to the exclusion of other issues. The situation is worsened by a level of passiveness amongst the people, which is a legacy of the previous political system. People often wait for the government to initiate solutions to the problems, even though the government has major difficulties of its own.
Assessment of environmental assets and damages
Natural capital
Some areas of Romania have remained largely free from pollution and the country contains many areas of great natural value. Substantial forest areas exist, and the diversity of flora and fauna is considerable. Some areas of special natural value already have protected status, with 12 National Parks having been declared. The Danube River Delta, Europe's largest wetland, is an other special area. In recognition of its unique value, a Danube Delta Biosphere Reserve was established. The Little Island of Braila, the last part of the Danube floodplain in its natural state, also has great value and should receive special protection. Some of the experts noted that with such areas existing in Romania, the potential for developing eco-tourism is very strong. There are also certain other types of assets from which Romania's natural environment benefits. Environmental NGOs, skilled researchers at a variety of institutions, and concerned media professionals are examples. Traditional values and lifestyles, still common in rural areas, are also assets as they exhibit a kind of environmentally friendly and truly sustainable development which has occurred for centuries.
Environmental damages
Economic development and human health in Romania are threatened by a variety of environmental problems according to the experts. About 25% of all forests are damaged by acid rain caused largely by pollutants coming from power plants burning low-quality coal. The damages to forests are especially harmful because deforestation results in increased soil erosion and reduced air quality. Water pollution from household, industrial and agricultural sources was cited as another threat, effecting fish breeding, irrigation, and drinking water supplies. One expert explained that 18% of surface waters are of such low quality that they are not even fit for industrial use and another reported that 4000 km of rivers are considered highly polluted.
A number of environmental hazard areas, or "hot spots," have also been identified, where the environmental problems are severely threatening human health. Cities such as Baia Mare, Copsa Mica, Zlatna, Onesti, and others suffer extreme contamination from nearby industrial facilities. Primary culprits include metal-working plants and fertilizer manufacturers. In all, more than 1.2 million people in the country are directly and continuously effected by pollution, with life expectancies in Baia Mare and Copsa Mica being about 10 years less than the national average.
Priority environmental problems
Water quality
One of the two environmental problems most commonly mentioned by the experts was that of water quality. Both surface and ground waters are heavily polluted, especially by industrial sources such as chemical and petrochemical facilities, with domestic, agricultural and mining waste waters also causing problems. Wastewater from these sources is a serious problem because most is discharged untreated or only partially treated. Over 4000 wastewater treatment facilities exist in Romania, but most do not function adequately. The Danube River is highly polluted in some areas and contributes significantly to water quality problems in the Black Sea.
Nature protection and restoration
Along with water quality, issues of nature protection and restoration received the most attention from the experts. Biodiversity, natural resources and scenic landscapes are threatened by a host of factors: unregulated commercial and residential development destroys habitat and is aesthetically unappealing; increased illegal hunting and fishing is depleting wild game; unauthorized tree cutting for profit and subsistence fuel damages forest areas. In some areas, environmental contamination from industrial pollution is so intense that all life is threatened.
Air quality
Air quality is a serious problem in many parts of Romania and was the next most mentioned priority issue by the experts. Industry, especially the energy and metallurgy sectors, is the primary cause. Another important and growing source of air pollution is automobiles, especially in urban areas.
Solid and hazardous waste management
Problems associated with solid and hazardous waste were also cited by many of the experts. Proper treatment and disposal facilities are seriously lacking and the problem is worsening as non-degradable throwaway packaging constitutes an increasing portion of the wastestream. One result of poor waste management practices is serious soil contamination in some areas.
Economic and political instability
Though not strictly an environmental problem, economic and political instability were mentioned by several experts as being the primary causes of the various environmental problems in the country. The economic crisis has created circumstances in which exploitation of the environment has intensified while the government and parliament are having great difficulties in developing and implementing measures which will effectively address the numerous problems.
Critical steps to start or continue environmental improvements
Management and administration
The Ministry of Environment was established in 1990 and later renamed the Ministry of Waters Forest and Environmental Protection. Also, the network of Field Agencies for Environmental Protection was established as a monitoring and control institution. The MoE is organizing an Inter-ministerial commission to improve the management of environmental issues within the transformation process. Such a commission may help to improve coordination and cooperation between the ministries, especially between MoE and the Ministry of Industry. Proper environmental management in the industrial sector is seriously lacking according to most of the experts. One expert stated that industrial enterprises have departments of toxicology for worker protection but generally do not have special offices for environmental protection. The potential of existing environmental expertise and information was described as under-realized because it is not coordinated or centralized for easy access.
Enforceable environmental policy and law
Improvements in the areas of policy, law and enforcement are greatly needed according to most of the experts. A National Environmental Strategy was formulated in 1992 in cooperation with the World Bank, however, its implementation has been very limited. While certain individuals within the MoE are responsible for policy development there is no separate office or department for environmental policy. New environmental laws are needed in many areas. At present, old outdated laws still govern environmental issues. A new draft Environmental Protection Act, and a Danube Delta Biosphere Reserve Law are presently under preparation. The lack of private property laws is also a problem, as currently a "tragedy of the commons" situation exists, in which many areas are still officially owned by everyone but nobody (in practice) is directly responsible for protecting them. Enforcement of existing laws is also seriously lacking and this is perhaps an even greater priority than the enactment of new laws.
Education and expertise
Environmental education is a high priority need in the opinion of the experts and all segments of society need awareness raising, with special emphasis on young people and decision-makers. Every possible forum should be used to advance environmental education. A couple of the experts noted that religious leaders could and should play an important role in this process as new, environmentally and socially harmful lifestyles and values are being promoted during this time of transformation. Professional training of specialists and decision-makers is especially crucial for improvement of environmental management and the integration of environment and development issues.
Technology and services
There is a definite need for modern production and environmental protection technologies as currently old and obsolete technologies are heavily relied upon. Technology for wastewater treatment and air pollution abatement used to be produced in Romania, however, this is no longer the case. While technological needs do exist, end-of-pipe solutions should not be the focus and improvements in law, enforcement and education were viewed as higher priorities.
Driving forces for environmental improvement and degradation
Free market reforms
Market reforms were cited by many of the experts as being a significant force effecting the environment, for better and worse. The loss of markets in the former Soviet Union and the non-competitiveness of Romanian industry has led to a substantial decline in production and thus a decrease in some types of pollution. However, as a result of the economic decline many people are suffering financially and poverty is increasingly driving intensified exploitation of natural resources.
International trade
International trade and open borders have also had both positive and negative effects on the state of the environment. Western firms dealing in polluting and hazardous industries have come to Romania looking to take advantage of weak environmental regulations and enforcement, while at the same time, open borders have allowed access to more environmentally friendly products and technologies.
NGOs and the media
The influence of environmental NGOs is growing, and having positive effects on the state of the environment. Their participation in the decision-making process is helping to improve public policy and raising environmental awareness. In a few cases, public opposition has halted the development of environmentally dangerous projects. The mass media is another emerging force for positive change, with newspapers, radio, and television giving attention to the environment.
International financial institutions
International financial institutions are also influencing environmental protection in Romania, largely for the better in the view of many of the experts. The government is in serious need of money, and institutions like the World Bank provide such assistance but with conditions for environmental improvements. As a result, the government has been forced to improve policies and management. Unfortunately, the World Bank usually supports only profitable projects which means that some efforts which might be more beneficial to the environment but which have less quantifiable or more long-term benefits do not get implemented.
Government authorities
Government authorities were often cited as being a driving force for change in the state of the environment. Most of the experts criticized the government for being ineffective in solving the many environmental problems the country is faced with. The environment is simply off the agendas of most decision-makers and a very conservative mentality giving special treatment to heavy industry still persists. Nevertheless, government environmental administrations carry much of the burden for making environmental improvements as they are largely responsible for formulating and implementing environmental protection policies and actions.
Industry
Industry was also listed as a driving force, unfortunately, for negative change. Much of industry still uses old and inefficient, environmentally harmful technology and in the currently difficult economic conditions wields significant influence because of its revenue generating capacity and the employment opportunities it provides. Many of the experts explained that industry has minimal concern for environmental issues, is largely unregulated and strong enough to effectively influence governmental decision-making.
Integration of environmental protection and economic development
Obstacles to integration
A variety of obstacles to integrating environmental concerns into economic development were mentioned by the experts. Perhaps the main one is the false belief held by decision-makers that environmental concerns only obstruct and hinder economic development. Most of the decision-makers simply do not understand how a healthy and clean environment is a necessary base for a sustainably strong economy. The situation is worsened by the plain fact that the environment is simply a very low priority for people. There is no widespread support for environmental protection, thus it is not on the agendas of decision-makers. This contributes to the MoE being one of the weakest ministries in the government. The other ministries have little real support for the objectives of the MoE. Free market reforms and the current economic crisis have encouraged the dominance of short-term thinking and the drive for immediate profits, which tend to exclude proper consideration of the long-term benefits to be gained by environmental investments. There are also more practical, but nonetheless serious obstacles such as the lack of a legal mandate for such integration, the lack of necessary expertise and knowledge, and the severe shortage of money required to address these issues and to make needed capital investments.
Existing and proposed measures for improvements in integration
Unfortunately, the experts were not able to describe many existing concrete examples of sustainable development or meaningful implementations of the polluter pays principle. Some progress has been made in the field of water management with the introduction of a fine system and a "Water Fund". A variety of pollution fines do exist officially, but the amounts are very low and they are neither effective as incentives to reduce pollution nor as sources of revenue for environmental investments. The concepts of both sustainable development and the polluter pays principle are included in the new draft environmental protection law which is in parliament. It is not known when this bill will be enacted as there are about 60 other bills also in parliament at this time. The Inter-ministerial commission mentioned earlier was also listed as a measure which should improve the integration of environmental concerns into economic development. One expert also reported that a special governmental counsellor will probably be engaged to deal with environmental problems.
Financing environmental improvements
The general state budget was reported as virtually the only mechanism for financing environmental protection. The amount of money appropriated from the state budget for environmental purposes is already very small, less than 0.5 % of gross national product, and diminishing. In theory there is money generated by a variety of pollution fines, but some of the experts explained that in reality this money is so minimal that it is insignificant. International institutions also contribute some money for environmental protection and there is some financial support for NGOs coming from foundations. New mechanisms, including stronger pollution fines, environmental taxes and a National Environmental Fund are proposed in the draft environmental protection law.
Despite the very limited nature of Romanian financial resources, most of the experts agreed that some environmental problems could be solved with domestic funds. (One expert noted that it is very difficult to identify problems which could be solved with national resources because it is very unclear just what the sum of those resources is given the way in which the national budget is managed and distributed.) Problems which might be solved using domestic resources include nature protection, repairing and maintaining existing pollution abatement equipment and environmental damage caused by poor agricultural practices. Foreign financial assistance is most likely needed for new environmental technologies, especially in connection with large capital investments like wastewater treatment facilities and air protection devices. Remediating serious environmental hazard areas will also require foreign assistance.
International cooperation
CEE-regional cooperation
Romania has had some successes in cooperating with its CEE neighbors in addressing environmental issues associated with the Danube River and Black Sea. Successful cooperation with other CEE countries on environmental issues has, however, been extremely limited and improvements in this area are greatly needed. Such cooperation is clearly essential for effectively protecting these two areas (the Danube River and the Black Sea) and would also be helpful in dealing with transboundary air pollution, harmonization of environmental standards with EC norms, and the development of nuclear safety plans. One expert noted that stronger economic cooperation within the region would also go a long way towards improving the environmental conditions in the individual countries.
Western assistance
The experts described a number of environmental successes in which western assistance played an important role. EC PHARE and the British Know-how Fund have supported environmental assessments and the World Bank provided significant help in developing a National Environmental Strategy. The United States Agency for International Development has provided much needed training through the Environmental Training Project program and NGOs are supported by REC and various western NGOs.
As for negative experiences with western assistance, some of the experts indicated that they did not know of any such experiences, while a few experts explained that it is important for the aid recipients themselves to be prepared to receive the aid and to be able to suggest how it might be best used. Apparently the Romanian government and other institutions receiving aid have not always been adequately prepared to effectively use it. Some of the experts also indicated that a considerable amount of aid money has actually gone to foreign experts making short-term visits to prepare feasibility studies which lacked meaningful input from local experts and were not realistic.
Western assistance should move beyond feasibility studies and assessments and should support direct concrete actions such as technological investments and cleanup of the most severely damaged areas. Expertise and training would also be especially helpful in numerous areas, including: management training for government, industrial, and NGO leaders; the development of post-graduate university programs; and the use of methodologies like environmental impact assessments. Assistance should come in the form of partnerships and make maximal use of Romanian input.
Interest groups in environmental protection
National / local governments and parliament
The national and local government administrations were reported most often as having the greatest impact on environmental decision-making. The national government is responsible for initiating environmental policy and law, and local and regional governments are primarily responsible for implementing those policies and laws. Parliament was also cited as having significant influence, in a negative sense, with its failure to enact a new environmental protection law.
NGOs and the media
NGOs' influence on environmental decision-making is growing, but remains relatively low. To some extent it depends on the individual organization, as some include highly qualified experts while others are lacking specialists. The media's influence in this field is also growing. They are now free and uncensored and able to distribute information quickly to many people.
Scientists
Scientists have some influence through their research and ability to recommend standards and various policy options, however, their role is limited in part because of the poor coordination and distribution of the results of their work.
International institutions
International institutions such as the World Bank, the EC and the European Bank for Reconstruction and Development also have notable influence through the conditions they attach to grants and loans given to the government as well as policy advice. Their involvement was generally considered very helpful by the experts, especially in regards to the development of better environmental policies and expertise.
REC * PUBLICATIONS * STRATEGIC ENVIRONMENTAL ISSUES 2 * ROMANIA
