Bulgaria
Political, economic and social impacts on environmental protection at the spring of 1994
Political changes
Concern for environmental problems was a driving force for the initial political changes in the country, though the environmental effects of these changes have not been dramatic according to many of the experts. Previously, environmental laws and policies existed but they were unrealistic or simply not enforced. As one expert reported, "controversial environmental policies were subjugated to ideological and/or industrial values." With the changes of the recent years some progress has been made in the actual implementation of policies. Also, social groups such as environmental NGOs were previously not allowed to exist or were silenced. Now such groups are active and attempt to play a role in decision-making. A new Environmental Protection Act was adopted in 1991 and amended in 1992. A National Environmental Strategy was developed in 1990-1991 in cooperation with the World Bank with implementation having begun in 1992. Indeed, one result of the political changes has been the possibility for international cooperation with western institutions and organizations. Bulgaria has begun to integrate into the western world and this has had positive effects.
The ongoing transition has not been easy and in some ways the government has simply been overwhelmed by the changes, finding it very difficult to adapt to new demands and new circumstances according to one expert. Another explained that annual reports on the state of the environment, though published, have not been submitted to Parliament and the Council of Ministers, as required by law, for three years. It was also reported that the diminished authority of the state government has led to weaker regulation of activities effecting the environment. The old systems have been dismantled but new systems and procedures appropriate for the new situation have not yet been established. Political instability has also resulted in incomplete policies and legislation and has hindered the privatization process. The government is in the process of changing its way of thinking and acting. It is necessary now for it to more clearly identify goals and priorities and coordination among the various state institutions must be improved. Some experts indicated that the current government is not strongly supported by parliament and thus important new policies and laws have not been passed. Additional revisions in certain existing environmental policies and laws are required, and harmonization with EC standards has already successfully started in the fields of environmental assessment and human health.
Economic changes
Under the previous economic system, the environment was adversely effected by the focus of the economy on heavy industry. With the orientation towards world market prices for raw materials efficiency has become a motivating factor for industry. Many industries have simply not been able to survive and economic production has decreased dramatically (about 35%), resulting in a visible reduction of pollution. This economic decline has, unfortunately, also diminished the funds available for environmental investments as much of these funds come from fines and penalties on industry for environmental damages. Moreover, the sudden changes have created a chaotic situation in which it has become very difficult to clearly identify needs and priorities.
Some market reforms, such as privatization, have progressed only very slowly according to the experts and have not yet had major impacts on environmental protection. This has some negative effects, for example there still exist many large state enterprises which are virtual monopolies in their sectors (i.e. energy production, water supply, meat production and leather industry) and thus able to avoid enforcement of environmental regulations. On the other hand, according to one expert, the slow progression has allowed time for the development of necessary related rules and mechanisms regarding the environment. Indeed, in 1992 the Parliament adopted an amendment to the law of privatization which guarantees revenue for environmental protection amounting up to 5% of the privatization transaction.
Social changes
The political changes brought new social freedom. Now people have the right to speak and to pressure the government to take certain actions. Public pressure has actually been successful in defeating some proposed environmentally harmful activities, such as the expansion of a dangerous metalworks plant. Environmental NGOs working on a professional level have had a positive impact on environmental protection and public awareness of environmental issues is rising. The MoE has even created a special office for NGO relations. (One expert noted, however, that while the public's awareness may be rising it is becoming less ready to act on that awareness.)
Other changes, especially economic, have created social pressures having negative effects on the environment. After the initial euphoria generated by the new freedoms of democracy, environmental issues have fallen far on people's agendas. People still express concern, but not enough to act. To some extent the environmental movement was used merely as a tool for advancing political reforms. Once the political reforms came, interest in the environment fell and people found other priorities. The political activism of some NGOs has diminished their and others' public standing. The romantic period of change was brief and people are now faced with the reality that the transition period will include great difficulties. Because of the collapse of the previous economic system many people, and the government as well, are in a financial crisis. Job security is now a priority issue with unemployment about 16% and rising. In such an atmosphere the environment is just not a priority.
Assessment of environmental assets and damages
Natural capital
The natural environment in Bulgaria is perhaps not damaged to the same extent as in some other CEE countries, or even as in developed western countries in the past. Unique Bulgarian forests, mountain areas like East Rodopy, Rila and Pirin, and the Black Sea coast provide a number of attractive tourism areas. There are many well preserved areas with exceptional biodiversity, and about 60% of the various European species can be found in the country, including some rare species. Instruments for environmental protection such as environmental impact assessments and environmental audits are being used more commonly and these may also be considered assets, as may the deep commitment some people have for protecting the environment and nature. A few of the experts reported that while Bulgaria has some well qualified people on the subject of environmental protection, their skills often go under utilized because of a lack of coordination and inadequate financial resources (low salaries in the field).
Environmental damages
It is difficult to separate environmental problems threatening economic development from those threatening human health, since serious problems effect both. In several areas (i.e. Stara Zagora, Assenovgrad and Ruse) extreme soil pollution from heavy metals produced by metalworking facilities has rendered lands unusable for agriculture. Certain riverstretches, such as of the Danube, Iskar and Maritsa, are considered extremely polluted and the water there is not fit to use even for irrigation. Mining activities result in serious air and water pollution. In some mines the levels of radioactivity pose serious threats. Exposure to lead from automobile exhaust is a growing threat, especially effecting children.
Several hot spots posing severe environmental risks have been identified including: the Plovdiv, Pirdop, Vratsa, Ruse, Montana and Kurdzhaly regions (non-ferrous metalworks have polluted air, soil and water with lead, arsenic, cadmium, etc.); the Varna-Devnya region (polluted by a giant chemical factory); and the Burgas region (contaminated by a petroleum plant).
Priority environmental problems
Water resources
Water problems were one of the most often mentioned issues by the experts as a top priority. Water quality is damaged by a variety of sources with pollution from industrial discharges and domestic wastewater chief among them. Wastewater treatment facilities often do not exist or do not operate properly. Another problem is that water reserves are already low and dropping. One expert reported that water is rationed 108 cities and is of low quality almost everywhere in the country. (Another expert countered this statement, however, saying that drinking water corresponds to international standards in all but a few locations.) The condition of the Danube River is reported as very poor, with transboundary pollution cited as one of the causes. The poor quality of the Danube also contributes to high pollution levels in the Black Sea.
Air quality
Along with water problems, air quality was most often cited by the experts as a priority environmental issue. Bulgaria's heating and energy system is based on the burning of low quality coal which results in heavy emissions of pollutants. The situation is worsened by the lack of modern pollution abatement equipment and the fact that the energy plants are sometimes located in the middle of residential areas. Growing problems resulting from automobile emissions were cited by several of the experts, with these problems becoming acute in the major cities. Extremely dangerous threats associated with radioactivity were also noted by a few of the experts. Bulgaria's nuclear power plants were described as very unsafe and posing huge risks to human health and the environment. As with water problems, air problems were also described as being exacerbated by transboundary pollution, in this case from Romania.
Waste management and soil contamination
The issues receiving the next most attention from the experts as priority problems were those associated with waste management. Household, industrial, and agricultural waste were all listed as being improperly dealt with. The need for recycling systems and modern disposal facilities was also discussed while one expert explained that Bulgaria is now being flooded with disposable packaging from the west and that such waste (especially plastics) just did not previously exist in the country. Severe soil contamination from industrial and agricultural waste was mentioned as a related damage resulting from poor waste management practices. Apparently in some areas the soil is damaged to the point that it is unusable for agricultural purposes.
Nature protection and biodiversity
Nature protection and preservation of biodiversity were cited by a couple experts as also being priority issues. Deforestation due to acid rain and drought was noted by one expert whereas another explained that biodiversity is now at risk from growing tourism and the exploitation of natural resources for economic purposes.
Critical steps to start or continue environmental improvements
Management and administration
Improvements in the areas of environmental administration and management are definitely needed. Currently there is a lack of strong experience in decision-making and problem solving. Better coordination and collaboration between MoE and other ministries and institutions such as the Ministry of Education and the Privatisation Agency are greatly needed. An Inter-ministerial Council was established in November of 1993 to address this. The management responsibilities and functions of the Ministry of Environment should be much more clearly defined. Regional and local environmental management plans and programs should be developed. Modern monitoring capacities, and methodologies like environmental impact assessments and environmental audits are also needed. (In recent developments to address these issues, a new computerized national monitoring, data analysis and information system has been introduced, legislation requiring EIAs passed and a bill concerning audits is being drafted.) Public participation should be encouraged in the environmental management process and mechanisms established to ensure that this happens. One expert suggested that the National Environmental Fund may be more effective if removed from the control of the MoE, while another suggested that a special environmental protection bank would be helpful.
Enforceable environmental policy and law
With a National Environmental Strategy being developed in 1990-91, in cooperation with the World Bank, US EPA and US AID, needs for improvements in policy are not as great as others according to most of the experts. This Strategy was not officially adopted but is used by the MoE. The Strategy should be officially adopted by the Council of Ministers. Environmental policy is set primarily by the Minister of Environment and Vice-ministers. There is no separate office or department for policy. Improvements in priority setting amongst the different environmental media are needed. Improvements in environmental legislation are probably not the highest priority as an Environmental Protection Act was passed in 1991, and amended in 1992. Legislation has been passed establishing an Environmental Protection Fund, requiring the use of EIAs and regarding hazardous waste management. A new system of penalties for pollution has been established and the polluter pays principle is being introduced. Some additional amendments should be made, however, and accordingly, bills have been drafted for air, water, soil, protected areas and solid waste and are awaiting adoption by parliament.
While environmental policy and law were not often mentioned as priority weaknesses, law enforcement certainly was. Most of the experts agreed that enforcement is woefully insufficient due to a lack of professional expertise, financial resources, and supportive political will as well as "the more or less conscious and public subjugation of environmental concerns to industrial and political goals."
Expertise and public support
Environmental education and improved expertise is badly needed in all sectors of society and should begin at the youngest possible age in the view of many of the experts. One expert noted that all people should come to realize that a market economy is not an end goal in and of itself, but merely a tool to use in sustainable development. The values of people are currently changing in a negative way and this change should be counteracted at least partly through education. All types of information channels should be used to increase appreciation for the environment. For those people most involved in environmental decision-making long-term, extensive, professional level training is needed. Education and training efforts must be well prepared and focused, with the results closely evaluated. Since 1989 many environmental training and education activities took place in Bulgaria, and they were often too brief and yielded marginal results according to one expert.
Technology and services
Technology was rarely mentioned by the experts as a high priority need. Nevertheless, various types of modern clean technology were reported as needed, both for production processes and abatement functions. These needs are especially acute in the energy sector. Existing boilers are old and pollution abatement equipment is lacking. New legislation now requires EIAs for new businesses (though their practical implementation needs further improvement) and a bill regarding environmental audits is being drafted. According to one expert, however, it may be several years before there is a strong demand for such services.
Driving forces for environmental improvement and degradation
Free market reforms
Forces associated with market reforms were most often cited as having strong influences on the state of the environment in Bulgaria. International competition and truer prices for raw materials have caused some industrial producers to go out of business, resulting in the reduction of pollution from this sector. However, these reforms are also having harmful impacts on the environment. Strong profiteering interests have emerged and heavily influence much of governmental decision-making to the detriment of the environment in the view of one expert. Others explained that the necessary legal framework (i.e. bankruptcy and investment regulations) for realizing many of the benefits of market reforms has not yet been established. The "rules of the game" have not been set, but the game goes forward nonetheless with the environment sometimes being harmed. Privatization was mentioned often as having potential for both positive and negative impacts on the environment, as well as being significant for its extremely slow progress thus far in Bulgaria.
International institutions
International pressure from foreign assistance and financial institutions, as well as from market competition is having a positive effect on environmental protection because the government is required to agree to environmental improvements in order to receive aid, and competition improves the quality of products and technologies.
Social problems
Social problems resulting from the economic crisis, such as job and economic insecurity, currently dominate the priorities of the general public and government officials with negative environmental impacts. In the face of such problems environmental protection is seen as a luxury which will simply have to wait until more fundamental needs are satisfied.
NGOs and public participation
NGOs and public participation in decision-making is having a positive effect but needs to be much stronger. Citizens' movements played a significant role in launching the political changes in Bulgaria, however, their influence on government policy has eroded substantially in the past few years. One expert noted that the polarization of different interest groups is having a negative impact on the environment. There is no mechanism for state and local governments, NGOs and businesses to work together on solving environmental problems. The groups do not understand each others' positions and motivations.
Integration of environmental protection and economic development
Obstacles to integration
The most often mentioned obstacle was the lack of money. Economic development itself is not progressing well and the various market mechanisms for environmental protection, widely used in other countries, do not yet function in Bulgaria. The situation is worsened by the lack of the necessary legal basis for such integration, the weak enforcement of existing law, and the continued state ownership of virtually all large industrial enterprises. Environmental protection is also simply not a priority. Economic concerns receive top priority and decision-makers do not appreciate the importance of, or possibilities for, integrating economic development and environmental protection. As reported by one expert, the dominant thinking is "environmental protection is expensive and we are very poor, so it will have to wait." The MoE is considered one of the weakest of all government ministries while the Ministries of Finance and Industry, for whom environmental protection is a very low priority, are very strong. Moreover, government officials lack the experience and knowledge needed to grasp the concepts and formulate the needed strategies. One expert explained that people working in the MoE lack expertise about market economics and the economists working in other ministries lack expertise about the environment. Another expert echoed this sentiment when explaining that sophisticated expertise in "green" economics is largely missing at all levels of decision-making. It was also reported that the current political powers were not likely to support the needed integration.
Existing and proposed measures for improvements in integration
Concrete examples of sustainable development are lacking according to the experts. The concept exists on paper, and it is discussed, but unfortunately there is not much more at this time. There are some efforts being made to implement the polluter pays principle. There are fines for air pollution and wastewater discharges, however, the amounts are very small and the industries just pay them without effect. With the state still very much involved in the production sector the effectiveness of the polluter pays principle is very limited. The concept of tradable pollution permits has been proposed but no concrete steps have been taken in this direction. The use of environmental impact assessments and environmental audits is becoming more common and should be helpful.
Financing environmental improvements
The primary financial mechanism for environmental protection is the general state budget. In 1992 the National Environmental Protection Fund was established by the Council of Ministers (by Decree) in order to implement the Environmental Protection Act. The Fund is managed by the MoE and a board which represents various other ministries and industries, and provides subsidies for environmental investments. (Mechanisms for low and interest free loans are also being developed.) There are some pollution discharge fees and fines for excessive emissions, but it was stated that the amounts actually collected are insignificantly small. There are plans to further develop the pollution fines system and to introduce new environmental taxes. Municipal Environmental Protection Funds also exist and there are as well incentives in the forms of tax reliefs and exemptions for environmental technologies.
With existing domestic financial resources water purification stations are being constructed in certain strategic areas. It should also be possible to develop environmental education programs, protect valuable natural areas, enhance public participation in environmental decision-making and implement small-scale projects at the local level. To properly manage hazardous waste, build wastewater treatment facilities for large cities, make nuclear power plants safer, and install modern pollution control equipment foreign financial assistance will be necessary.
International cooperation
CEE-regional cooperation
There has been very little cooperation with CEE neighbors. One reason is that they are also poor, and another is that after the communist governments of the region collapsed there was a natural tendency for the countries to move away from cooperation after so many years of forced alliance. There is some cooperation regarding the Danube River and the Black Sea, but it is very limited. There is a growing realization that CEE and indeed Pan-European cooperation is necessary. Countries of the region have common histories and it would be helpful for them to cooperate in developing their own paths toward sustainable development. Regional cooperation is clearly needed on issues involving the Black Sea and the Danube River, as well as transboundary pollution from Romania. Cooperation would also be helpful in attracting and effectively using foreign assistance.
Western assistance
Several examples of successful cooperation with western countries and institutions were cited: professional training has been supported by the EC PHARE Program, US AID (Environmental Training Project), and US EPA (Environmental Management Training Center), the National Environmental Strategy was prepared with assistance from the World Bank, and there has been additional help from the Swiss, the Germans, the Japanese, the British Council and the British Know-How Fund as well. The "Environment for Europe" process has been helpful in this regard and the upcoming European Environmental Ministers Conference in Sofia, 1995, should have a positive influence on the Bulgarian government and NGOs.
Nonetheless, there have been some negative experiences with western countries as well. There was a well publicized case of a German firm trying to bring its hazardous waste into Bulgaria. Sometimes foreign assistance institutions are deciding what to fund without the input of local or national experts, while on other occasions the priorities of the aid institutions are not the same as Bulgaria's priorities. Additionally, the loan policies of international financial institutions are not very favorable according to some of the experts
Up to this time most of the western assistance went into policy improvements and institutional capacity building. Now support should be given for concrete activities that will yield measurable improvements in the environment. Investments in technology are needed, as is help in harmonizing legislation and regulations with EC standards. National and local consultants should play a more significant role in projects supported by foreign assistance. Expertise in many areas continues to be a need, as does management training,
Interest groups in environmental protection
National government
There was no consensus among the experts as to which interest group is having the greatest influence on environmental decision-making but the national government was most often mentioned as playing a major role. It controls the large majority of funds allocated for environmental protection, makes environmental policy and proposes environmental law. Parliament was mentioned by only one expert as having a major influence. The experts had differing opinions on the impact of local governments. Some experts listed them as playing important roles while others stated that their role is very limited due to their lack of revenue sources and the fact that they do not yet have the necessary legal authority.
NGOs and scientists
NGOs and scientists are having an impact on environmental decision-making, though it is probably less now than it was directly after the initial political changes in Bulgaria. Up to and at that time the environment was used as a platform for criticizing the previous political system. Now, however, people have other priorities and the environment has fallen far on the agenda. NGOs and scientists are successful, however, at carrying out educational and training courses, and they are becoming involved in EIAs. Most of the experts agreed that NGOs and scientists have a very important role to play and that they must continue to improve the strength of their activities.
Media
The media was cited a few times as potentially playing a significant role in environmental decision-making, but still tending towards sensationalism and not always presenting the facts.
Industry and trade unions
Industry and trade unions, especially the mining union, were noted as being quite strong and usually having negative impacts on environmental decision-making.
REC * PUBLICATIONS * STRATEGIC ENVIRONMENTAL ISSUES 2 * BULGARIA
