DRAFT NATIONAL REPORT - POLAND  ON THE IMPLEMENTATION OF DECISIONS RESULTING FROM THE CONFERENCE  ON THE "ENVIRONMENT AND DEVELOPMENT" PREPARED AS THE OUTPUT OF THE "RIO+5" NATIONAL CONSULTATIONS ORGANIZED BY THE EARTH COUNCIL (COSTA RICA)

Poland had actively participated to the UN Conference on the Environment and Development which was held in Rio de Janeiro in 1992. Poland signed all final documents adopted during the Conference. Implementation of a number of principles to forming the basis for the Conference had been begun in Poland yet before 1992. While confined to the five-year period after the Earth Summit, a brief summary of implementation process of the eco-development principle in Poland (according to the Earth Council) has been outlined in this Report. 
 

A. PROCESSES UNDER WAY IN POLAND AFTER THE UNCTED'92 

Ecological Policy in Poland 

 
Poland has implemented the "State Ecological Policy" which was adopted in 1991 by the Parliament of the Republic. Poland has secured the implementation of the eco-development principle while being convergent with the AGENDA 21 Programme adopted during the UN Conference on the Environment and Development in Rio de Janeiro. The principle of sustainable development had then constituted the basis for a number of programmes aimed at both national development and environmental protection. It is noteworthy that yet by two years before the Earth Summit in Rio de Janeiro, both the Polish Government and the Parliament reached the consensus on the basis for environmental protection policy in Poland. So, the provisions of the Rio Conference have been being implemented in Poland despite so far there is still no official document titled "Agenda 21, Poland". 
 
Executive programme for the Polish Ecological Policy was adopted by the Parliament of the Republic in 1995. Also, Parliamentary Act on Sustainable Development was adopted that year. The ecodevelopment principle has formed an integral element of "National Social and Economic Strategy", a Governmental document which has outlined the directions for social and 
economic development of the country. At the end of 1994 the Senate of the Republic managed for a meeting of key representatives of both scientific and non-governmental organizations in order to discuss the "Assessment of  the Implementation of National Ecological Policy in the Light of the >Strategy for Poland<". The latter document has formed the basis for the activity of the Polish Government up till 2000. During the meeting an implementation rate was assessed of the sustainable development principle in the light of the aforementioned strategic Governmental document. Poland 
enforced also the Environmental action Programme which was adopted during the Ministerial Conference in Lucerne, 1993. At present, decisions of the Sofia Conference, 1995 are being implemented. The LEAPS (Local Environmental Action Programmes) are being implemented as the response to the initiatives undertaken during the Lucerne and Sofia Conferences. The Ministry of Environmental Protection Natural Resources and Forestry has supported the implementation of two such programmes, for the cities of Ełk and Radom. To this end the Ministry has begun the co-operation with the USAID and USEPA in this regard. 
 
In the framework of support for the implementation of the AGENDA 21 in Communes (i.e. local self-government administration units), materials supporting the policies for sustainable development were published on local self-government level, while sponsored by the Eco-development Council, that was active under the auspices of the President of the Republic until 1995. This action reached a wide scale coverage in Poland. 
 
In October 1994 the Polish Commission for the Eco-development was appointed upon the Order of the Prime Minister of the Republic, as direct result of establishment of the UN Commission for Sustainable Development, forming its national and institutional Polish counterpart. The Commission is presently one of the most important opinion-making and advisory bodies of the Polish Government in spite of implementation of long-term plans concerning sustainable development. Activity schedule for so far held meetings of the Polish Commission for the Eco-development has included a lot of vital issues pertaininmg to Polish economy, e.g. policy for agriculture and food processing industry, transportation policy, chemical industry, co-operation with both the UN Commission on Sustainable Development and other agencies 
of the UN system. 
 

Polish Participation to Regional Programmes 

 
Some programmes are under preparation on Poland in order to set-up the regional concept of sustainable development in the country-scale. They are ECONET and Baltic AGENDA 21. The goal of the ECONET, European System of Protected Areas is to cover the continent with a network of natural reserves, national and landscape parks, and other institutional forms of nature conservation with the aim to maximize long-term benefits resulting from sustainable socio-economic development. These benefits may be achieved thanks to both the investment in natural capital in particular countries and international co-ordination of efforts aimed at: 
  • covering the most important and unique resources of live nature in continental scale, and 
  • achieving spatial continuity of the areas to protect these resources. 
The core of ECONET is formed by the areas, which have been covered with the protection according to individual criteria adopted by particular countries. They have been however supplemented with additional areas, which full value can be appreciated just only in European perspective. 
 
National Foundation for Environmental Protection elaborated a detailed concept for incorporating the National System of Protected Areas in Poland to the ECONET System. 
 
Parallel to the creation of the ECONET System the Pan-European Strategy for Biological and Landscape Diversity is now under its construction. The goal of this Strategy, while developed by the European Council, is to preserve or restore biological and landscape diversity in the scale of continent. This goal is merely more general than the aims of the Strategy, nevertheless they are both fully coherent. Through the creation of a network of protected areas the ECONET has served as the means to preserve the most valuable natural resources in Europe in line with traditional 
means for spatial management which are favourable to the protection of these resources. So, relation between nature conservation and cultivation of culture, in its traditional sense, has constituted the core of Pan-European Strategy, and this has been recognized as on of pillars of ECONET organization structure. 
The Stockholm Environment Institute elaborated, as the assignment from Swedish Government, a draft Baltic AGENDA 21. Poland has actively joined the work on this document in its present stage. 
 

Co-operation with NGOs 

 
During last five years increased a number of non-governmental organizations which are dealing with ecological issues. There are about 700 such organizations active in Poland. The Ministry of Environmental Protection Natural Resources and Forestry has co-operated with 60 such organizations. Major NGOs in Poland are: Polish Ecological Club, Institute for Eco-development, National Foundation for Environmental Protection, Bureau for Servicing Ecological Movement. Creation of mechanisms is planned at 
present in order to enable non-governmental organizations to participate to the creation of concepts, identifying and appraisal of mechanisms to implement the AGENDA 21 in Poland. Works have been conducted now on the preparation of a framework for permanent co-operation with NGOs. 
 

Strengthening the Role of Business and Industries 

 
In line with Governmental activity which is aimed at effectiveness 
extension of the use of natural resources, including the recycling of raw materials and reduction of waste, activity has been undertaken by entrepreneurs to support effective management and use of natural resources. To this end the Polish Eco-development Council was appointed to comprise the world of business and finance which has promoted the concept of sustainable development and initiated and sponsored the activity aimed at environmental protection. European standards ISO 9000 have been introduced into the management of industries while introduction of ISO 1400 standards is under way. Cleaner Production Programme (see also Item C below) has been 
implemented. Number of companies increased which have accepted and enforced the policy of sustainable development. 
 

Role of Research Sector 

 
Efforts have been made towards the upgrading of interchange of both knowledge and achievements between researchers and the public. Research community is involved in both formal and informal education of the public. 
The NOT National Federation of Scientific-Technical Associations and the Polish Centre for Cleaner Production both managed total 27 series of training courses to train engineers to elaborate and implement in their industrial practice the projects leading to minimize production of waste. 
The NOT National Federation of Scientific-Technical Associations declared the year 1997 as the Year of Cleaner Production. Training for teachers of both primary and secondary schools is being managed. Researchers participate to meetings with both youth and representatives of local authorities. The eco-development idea is being promoted through the means of press and scientific publications, i.e. "Rio - the Beginning of Ecological Era", "Earth Summit - Global Action Programme",  etc. 
 

International Co-operation 

 
The Ministry of Environmental Protection Natural Resources and Forestry has actively participated to the implementation of the "AGENDA 21" and other United Nations Programmes in the scope of sustainable development. Also other programmes in this regard, e.g. those of European Council, Central European Initiative, European Union, OECD and international financial institutions are of deep interest of the Ministry. Poland entered 24 international conventions and most of them have been ratified. Together with its neighbour countries, Byelorussia, Czech Republic, Germany, 
Lithuania, Russia, Slovakia and Ukraine, Poland has implemented a number of joint projects. Poland has also participated to some sub-regional projects, like protection of Baltic Sea, Green Lungs of Europe, Eastern Carpathians, Lower Odra, Black Triangle and the Silesian-Orawski Region. 
 
 

B. ACTIVITY PRIORITIES FOR THE SAKE OF ECO-DEVELOPMENT 

The priorities are briefly discussed below: 
 
1. Sustainable agriculture. 

Land management is a key element of sustainable development. In Polish conditions agriculture is of special importance because it forms an administrative and decisive aspect for 60 per cent of the country area. Moreover, it is the agriculture that impacts as well water balance of the country as eutrification of Baltic Sea waters (nitrates and ammonia), and also European acid rain. Taking into account the unique traditional rural structure of Poland, a Programme for Sustainable Agriculture can stand for an alternative solution against its possible intensification. In the framework of low-cost agriculture, Polish farmers would have a chance for "internalization" of social benefits (water balance, biological diversity, etc.) which would have been provided thanks to non-intensive land management. 
 
2. Solving the municipal transportation problem. 

Just now, emission form transportation sector has a decisive aspect for life of over half of national population. Increase of a number of cars registered came several years sooner than the prognosis derived in the eighties. Neither municipal infrastructure has appeared sufficient to this end nor the quality of transportation means has improved sufficiently soon. 
 
3. Enforcement of marketable pollution permits. 

As well conceptual works as demonstration project in the city of Chorzów (1991-93) both have shown significant usefulness of this instrument for implementation of both environment rehabilitation programmes and reconciliation of ecological requirements with the needs for economic growth, employment, etc. Marketable pollution permits enable environmental administration authorities to operate in terms of assimilative capacity, instead of acting within technological conditions. They enable also local administration authorities and communities to define appropriate development targets and give them a policy instrument which in ecologically safe and efficient way can bring about appropriate use of market forces. 
 
4. Working out a model for modern forestry to comply with the need for the  protection of biological diversity. 

Polish experience has shown that plans for forest management are frequently a factor confining the extension of biological diversity protection. The most efficient co-operation between local communities and national parks can be observed where situated off large forest complexes (e.g. the Biebrzański and Poleski National Parks). And vice versa, real or imagined conflict with forestry management constituted the most frequent constraint in the process of creation of the Mazurski National Park (to replace existing landscape park) and extension of the Bia?owieski National Park. 
 
5. "Ecologization" of educational programmes. 

Despite partial achievements (e.g. in publishing of manuals), extension of training programmes for ecological issues runs rather ineffectively. The progress in raising ecological imagination and awareness can be achieved by means of using examples in this regard, in causes which traditionally were filled in with technical, financial and other examples. Of course, the "ecologization" programme should be introduced restrainedly, in order to inspire but not to cause reluctancy towards ecological issues. Besides, specific training forms are necessary while introducing eco-development, those would be appropriate for several training levels (e.g. secondary, academic, post-graduate). 
 
According to Governmental Report, priority activities in the field of environmental protection up-to 2020 have included: 

  • protection and development of naturally valuable areas 
  • recultivation of degraded resources 
  • emission reduction of dust and gases 
  • water protection in spite of its deficit 
  • upgrading the system for industrial waste disposal and utilization 

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C. EXAMPLES OF ACHIEVEMENTS IN THE IMPLEMENTATION FIELD OF "AGENDA 21" 

 
Undoubtedly, a lot of examples could be cited here to prove the success in implementation of AGENDA 21 in Poland, on both national and local levels. A comprehensive example of implementation of Cleaner Production Strategy is given below to this end. 
 
The activity was begun in the framework of Polish-Norwegian co-operation programme which has been carried out since 1990 jointly by the NOT National Federation of Scientific-Technical Associations and the NIF Federation of Norwegian Qualified Engineers. The Polish-Norwegian Programme for Cleaner Production was approved by OECED as the pattern for other East and Middle European countries. The Programme is based on Chapter XXX of the AGENDA 21 and this has been carried out in two following Steps. 
  • Step One: Educational-implementation activity lying in traning in designing   and implementation of Cleaner Production Projects 
  • Step Two: Drafting and implementing "Natural Environment Management System  for Industry" in production plants participating to the Programme 
 
Within Step One, 420 Cleaner Production Pilot Projects were implemented in industrial plants in the country scale until 1996. That was done in the framework of 27 training cycles organized by joint NIF-NOT Polish-Norwegian Centre. About 900 experts were trained coming from some 600 industrial plants, institutions and schools. 
 
Implementation of Step Two has been begun with the signing of Declaration on Cleaner Production. The aim of the Declaration is to operate business activity with the view to saving natural resources. Based on the basis for sustainable development of the industry it has been proposed to introduce the principles of preventive natural environmental management to production and development programmes in enterprises. The aim of these principles is to maintain continuous reduction of the quantity of solid, liquid and gaseous waste produced in the course of industrial process, with paralell achieving of economic benefits. In practical implementation of the Declaration, the enterprise is preparing and implementing a given Cleaner Production Project according to UN methodology. It should also introduce this Project to its production plans, and to appoint a Plenipotentiary Director whose responsibility is to supervise the execution of the Project. The Ministry of Environmental Protection Natural Resources and Forestry jointly with the Ministry of Economy both have managed for suitable training with the view to gaining the methodology for Cleaner Production Design. They also assist in rendering appropriate information on worldwide solutions in this regard, and also support the enterprise in question in its efforts to acquiring financial means from budget resources. Apart from Norwegian patterns, Poland has benefited also from some U.S. technologies. To this end, Waste Minimizing Programme is carried out in Poland, according to the World Environmental Centre, who has entered a co-operation with two major Polish chemical plants. These are the "Organika Zachem" Chemical Plant, in Bygdoszcz and the "Oświęcim Chemical Plant", in Oświęcim. In the Bydgoszcz enterprise, as the result of implementation of a series of Projects, emission was reduced by 20 per cent, quantity of liquid waste pollutants was reduced by 15 per cent, and the quantity of solid waste - by 8 per cent. At the same time, annual economic savings amounted to 2,3 PLN. 
Annual economic effect in the Oświęcim enterprise amounts to 4,6 PLN. A simple process modification for polyvinyl chloride (PVC) at the cost of 69,000 PLN resulted in emission reduction of vinyl chloride monomer by 93 per cent. 
 
During the meeting of UNEP Senior Advisers on Cleaner Production which was held in Warsaw, in October 1994, the Minister of Environmental Protection Natural Resources and Forestry presented a proposal to establish National Centre for Cleaner Production. Within the PHARE Indicative Programme for Multi-year Assistance, creation of such a Centre for environmental protection sector was assumed for the years 1995-1996. The Project will be begun in 1997. Responsibility scope of the National Centre will include: collecting information on application of Cleaner Production Strategy to environmental protection management in the EU countries, data collecting on Cleaner Production Projects being implementaed in domestic industrial plants and on achieved both ecological and economic effects, carrying out the works on harmonization of domestic legislation with respective EU standards, elaboration of training, consulting and expert appraisals, maintaining the list of experts on Cleaner Production. 
 
There are still no specialized research centres in Poland to deal with the best available technique and technology. It is assumed, that implementation of national system for the best available technology will be carried out in two steps. During the Step One, draft system schedule for its functioning and organization will be prepared. Implementation of this Project is assumed as Step Two. 
 
During five years of the Polish-Norwegian Cleaner Production Programme 435 Pilot Projects were implemented. In 1996, during the Second National Forum for Cleaner Production Movement, 63 industrial plants were granted Certificates of Clean Production Enterprise. 
 
Establishing of both the Biebrzański and the Poleski National Parks in full co-operation with respective local communities are the examples of successful implementation of eco-development principle in practice. Social support - at least partially - resulted from the fact, that the areas of these Parks belong to the group of poorly developed ones, and according to their inhabitants, the areas have no chance to their industrialization. 
Nevertheless, the success has resulted from appropriate awareness raising and opinion making of local communities, and also from a relatively accessible various founding sources for the protection. 
 
 

D. GOALS OF THE AGENDA 21 LAYING IN THE BASIS OF IDENTIFICATION AND IMPLEMENTATION OF SUBJECTS DISCUSSED AS ITEM C ABOVE 

 
Goals lying in the implementation of Cleaner Production Programme 
  • participation growth of two major social groups - business and industry 
  • ecological awareness raising and increase of participation of major social groups to decision making process 
  • improve economic effectiveness 
  • promote the patterns for sustainable production and consumption 
 
Eco-development principles in establishing the Biebrzaäski and the Poleski National Parks: 
  • joining together the development prospects and the protection of local natural capital, mainly on the basis of tourism 
  • "internalization" of social benefit in the form of increased local income as the result of financing the tasks of environmental protection from both Governmental budget and from other specialized institutions 
 

E. BARRIERS AND CONSTRAINS FOR THE RIO PROVISIONS 

 
Constrains hampering the implementation of the priorities designed as Item B above: 
  1. Lacking appropriate patterns within EU as well as its extremely complicated and expensive agricultural policy. Competitive role of cheap imported agricultural products being however far away from ecological food standards. 
  2. Difficult to control, mass motorization based on cheapest car models. 
  3. Parliament overloaded with the burden of work while managing basic legal reform concerning all the domains of social life. Adopted by the Government legislation priority aimed at the approximation to the EU laws which leaves a narrow margin of liberty for application of market tools for environmental policy making. 
  4. Difficulties of transition period hampering forestry management and resulting prudence in forming a compromise between traditional production and environmental functions mentioned as Item B.4 the problems pertaining to the Bia?owieski National Park and the Mazurski Landscape Park were connected with strong social position of forestry management staff which. This position should undergo major modification in the case of extending of the protection. 
  5. Inertia within educational circles which - like for forestry - have to face challenges resulting from system transformation. A sense of wrong and under investment should be stressed here. 
 
Conflicts between goals/principles in AGENDA 21 and liberalization of trade 
  1. Liberalization of market for reclaimed raw materials has brought about trade in some raw materials like for instance scrap paper. This in turn has caused disturbances in domestic markets of these raw materials diminishing a recycling rate. 
  2. Liberalization of turnover in used cars will cause acceleration of motorization while based on outdated models. 
Poland banned both imports of toxic and hazardous products as a part of national strategy for environmental protection, and of used cars older than 10 years. Such prohibition and restrictions of free trade may be questioned by GATT. Poland suffered from free trade done in a form of market invasion by low quality products, which are not always safe for the environment. Poland has also suffered from imports of hazardous waste to their disposal on its territory. Fortunately, these imports have been successfully hampered thanks to the activity of the State Inspection for Environmental Protection. 
 
Insufficient integration of environmental policy with other economic policies. 

An example of such divergence is transportation policy which implementation lays in supporting mass motorization while environmental policy tends towards support for railroad and public transportation. Unfortunately, in recent years a decrease has been noted in railroad transport by 50 per cent, public transport by 33 per cent, while the rate of private motorization has increased for 40 per cent in 1990 up to 62 per cent in 1995. Moreover, promotion of motorization can be proved with examples of privileges given to automotive concerns like General Motors which has benefited from tax exemption for 10 years. 
 
An Improper Trend towards a Change in Consumption Patterns  
 
At present, in Polish social awareness a strongly functioning consumption model is prevailing while based on Western patterns to lead to super-consumption society. This is one of major threats to the environment which has been still perceived to an insufficient degree. This unrestrained consumption model has been promoted by media, mainly by a system of advertising which have abused e.g. the beauty of nature for promotional purposes of goods being destructive for the environment. 
 

F. RECOMMENDATIONS FOR NATIONAL AUTHORITIES 

 
Recommendations for Local Authorities  
  1. Assist local communities in formulating their development strategies with the use of their local environmental resources 
  2. Assistance for preparing good investment projects 
  3. Assistance for the collection of finance based on available sources of grants, credits and capital shares. 
 
Recommendations for Central Authorities 
 
Establishing central national institutions representing global needs in the scope of exercising global governance. The most important example of such an institution on Poland is the Eco-Fund. Resources of this foundation have originated from swapping a part of Poland's foreign debt for support to environmental protection projects. 
 

G. RECOMMENDATIONS FOR INTERNATIONAL INSTITUTIONS 

 
A need to founding institutions to represent common value, that is a share in global governance, e.g. the ozone layer or the Baltic Sea, should also be respected on international level. Such institutions should manage at least modest financial resources necessary for their effective protection. 
Such financial instruments have been already applied to the protection of ozone layer, but there are no such instruments designated for the protection of Baltic Sea. 
 
(Item G will be supplemented by Dr. Adam Kowalewski, former permanent Polish representative to UNEP) 

 


Last change: 13 May 1997