Il monitoraggio Vas nei fondi strutturali
Transcription
Il monitoraggio Vas nei fondi strutturali
SEA monitoring and cohesion policy Outcomes - 2012 SEA monitoring WG Italian Network of Environmental Authorities MATTM – PON GAT Linea 2 VIA-VAS Mara Cossu e Bruna Kohan Where did we start from? ENEA WG Cohesion Policy and Strategic Environmental Assessment (2008) Monitoring the application of SEA Directive to Operational Programmes 2007-2013 http://ec.europa.eu/environment/integration/pdf/sea.pdf Starting issues: concerns raised by the ENEA experts the risk to have SEA seen by non-environment experts inside and outside Managing Authorities and Public Administration as an additional useless burdening exercise; the participation and effectiveness of participation of the public and other environmental stakeholders in the SEA process; the participation and effectiveness of participation of Environmental Authorities themselves in the SEA process; the methodological questions arising from the implementation of SEA to Programmes which, by their very nature, are most of the time multi-sectorial and multi-territorial. Starting issues: opportunities by SEA process the possibility to integrate environmental concerns and sustainability issues since the programming phase; the contribution to the EU objective of a high level of environmental protection; a higher and strengthened cooperation Authorities and Environmental Authorities; among Programming/Managing on the capacity building side, the professional growth of development experts and environmental experts on strategic and planning issues, both in old and new MSs. Scope of the survey: 28 analysed Operational Programmes: MSs participating to the Working Group - 9 Ops Cyprus; France; Italy; Slovakia MSs participating to the survey (outside the Working Group) – 6 OPs Austria; Estonia; Lithuania Other MSs analysed by the Working Group - 9 OPs Belgium; Ireland; Luxembourg; Portugal; Spain; Sweden; UK; 2 Cooperation Programmes (Interreg IVC; MED) Main outputs ASSESSMENT Programmes setting conditions for further environmental assessment procedures 32% 32% 32% 32% 36% 36% Conditions set Conditions set Conditions not set Conditions not set No answer - no information available No answer - no information available Main outputs ASSESSMENT Monitoring systems of indicators chosen by analysed programmes Comprehensive ERDF monitoring system 11% 11% OP performance indicators OP performance indicators + baseline indicators 29% Other 11% Indicators to be defined 21% no environmental indicators 7% no answer 11% 0% 10% 20% 30% Margins for improvement from the application to Cohesion Fund and Structural Funds Programmes - 1 1. Lack of information for structuring environmental context analysis There is a need to develop a database of information sources and contacts (e.g. across Government departments) for use in the SEA process. Some of this information e.g. lists of publications, should be available on internet. 2. Training and further methods and tools for participation of the public and consultation of the environmental authorities. 3. Need continuing of integration of environmental issues all along the implementation phase of the programmes. This calls for setting tools and methods for integration inside SEA documents. 4. Ineffectiveness of monitoring due to no operational monitoring system at a national level, environmental effects are usually dealt with on a case-bycase basis. 5. Support to cultural responsibleness of public authorities, setting aside the compliance logic that generally characterises SEA and environmental issues in general. Margins for improvement from the application to Cohesion Fund and Structural Funds Programmes - 2 6.Move towards an integrated assessment logic. Integration between ex ante evaluation and SEA, where provided, allowed bringing SEA outputs into the “programming table” and taking them into consideration. Ex ante evaluation generally still seems to be a weak process not able to influence programming activity. SEA can be considered even weaker, but not so much. The problem becomes how to strengthen the assessment process as a whole, not depending on specifc contents but on capability of influencing the programme. Both processes are requested from EC and too focussed on writing documents rather than on producing information for the participation. This leads ex ante evaluation and SEA to be a “written procedure” much more than a process, limiting their potential influence on Programming Authority. All processes are driven by a compliance logic. 7.Elaboration of CP specific targeted guidelines on coordination assessment procedures for SEA, EIA and Natura 2000 Appropriate Assessment. …back to Italy and to our days… Reflections on SEA’s italian regional law Environmental framework Indications for monitoring ABRUZZO BASILICATA ■ ■ BOLZANO ■ ■ ■ CALABRIA ■ CAMPANIA EMILIA ROMAGNA FRIULI-VENEZIA GIULIA LAZIO LIGURIA LOMBARDIA MARCHE MOLISE PIEMONTE PUGLIA SARDEGNA SICILIA TOSCANA TRENTO UMBRIA VALLE D'AOSTA VENETO Role of Environment al Regional Agencies Other subjects’s role Construction knowledge base ■■■ ■ (SIAT) ■ ■■■ ■■■ (CTA) ■ ■ ■ ■ ■ ■ ■■■ ■ ■■■ ■ ■ ■ ■ ■ ■ ■ ■ ■■■ ■ ■ ■ ■ ■ ■■■ ■ ■ ■■■ ■■■ ■■■ ■ ■■ ■ ■ ■ (NURV) ■ ■ fonte: Ricognizione della normativa regionale in materia di Vas – Mattm, Tf Pon Gat (2010 in aggiornamento) ■ ■ ■ (SI-VVI) ■ ■ (SISA) ■ ■ La lettura della tabella consente per ciascuno dei temi considerati l’individuazione delle realtà regionali che hanno configurato disposizioni in materia di VAS, articolandole per rilevanza: ■ elemento presente nei dispositivi regionali, e di approfondimento rispetto ai contenuti del D.Lgs. 152 e s.m.i. ■■■ elemento presente nei dispositivi regionali, con approfondimenti rilevanti rispetto ai contenuti del D.Lgs. 152 e s.m.i. Analysis boards received 16 Regions/Autonomous Provinces have sent the analysis boards: n° 16 boards of Regional Operative Programmes ERDF n° 5 boards of Rural Development Programmes EARDF n° 1 board of Interregional Energy Operative Programme Bolzano, Calabria, Campania, Lazio , Liguria, Lombardia, Marche, Molise, Piemonte, Puglia, Sardegna, Sicilia, Trento, Umbria, Valle d’Aosta e Veneto n° 1 board of Networks and Mobility National Operative Programme 4 Regions haven’t sent the analysis boards: Abruzzo, Emilia Romagna, Friuli Venezia Giulia e Toscana Structure of analysis boards for the SEA monitoring 1. Indicators 2. Governance 3. Integration + element present - element not present important element which is state-depth * never actually started monitoring Results of the analysis Of the 23 programs analyzed, only 13 have approved the monitoring plan, or defined in the Environmental Report, monitoring measures such as not needing a plan later. Monitoring Reports, effective witness to the activity, have been published for 9 programs of the 13 programs with approved plans. Structure of the Monitoring - indicators What has been monitored? Program's ability to achieve its sustainable environmental objectives Environmental effects of positive/negative (sometimes positive only) Quality of the environmental integration process – is starting Environmental Governance process - only in two cases Structure of the Monitoring - indicators Context Indicators Data retrieval is still problematic in many regions (Difficulty/onerous contributions Regional Environmental Agency) Examples of effective collaboration Regional Environmental Agency/Region/Environmental Authority First cases of the structure according to the methodology MATTM-ISPRA (sustainably objectives-context indicators) Increasing role of information systems (in trouble in the center-south) Structure of the Monitoring - indicators Programme indicators (1) Generally structured by Axes and Lines of action to which are associated its own environmental sustainability objectives identified in the ER Integration of the core indicators of the Commission (in relation to the monitoring program) Little prediction of territorial focus where necessary (for thematic, Major Projects, specific axis) Embryonic use of information systems for the collection and return of results of environmental monitoring Structure of the Monitoring - indicators Indicators Programme (2) - population No difficulty if the indicators fully support the monitoring program Difficulties due to the recognition of the role of EA and its ability to operate effectively (resources) Need to plan the exchange of information throughout the whole implementation of the programme, identifying precise time windows (to deal with the manifestation of lack of information provide sheets for the collection of information ad hoc) Integration (types and elements) (1) Physical, procedural, financial VS environmental monitoring system (different levels of integration) SEA monitoring as part of a wider programme monitoring system (EARDF specific framework) – environmental information within annual execution report by MA Sharing of some indicators depending on programme and axis objectives/Programme monitoring system as source of data for SEA monitoring Some Regions working on “common frameworks” setting environmental objectives and baseline indicators for Regional policy (included cohesion policy) -> Ministry of Environment and ISPRA preliminary activity Integration (types and elements) (2) Conprehensive assessment plans (elaborated by every Region) In only few cases they comprise information or indications on environmental monitoring. Environmental authorities rarely participate in formulating “assessment questions”, part of the assessment plans. Some Regions are studying the opportunity to use the assessment plan as an interlink between environmental monitoring systems of different programmes (ERDF and EARDF) In one case the assessment plan establishes a pilote assessment committee, which includes the Environmental Authority. Integration (types and elements) (3) Comprehensive monitoring system Campania Region approved a comprehensive environmental monitoring system among all programmes (both SF and national funds): environmental monitoring thought as a decision support activity. In some cases, comprehensive monitoring for shared measures (ERDF/EARDF) Environmental Authorities and Regional Agencies for the Protection of the Environment as key elements for integration (they work on all programmes) Reflections on governance Involved actors - Roles (EA, ARPA, MA) - Institutional responsabilities Interaction among actors - rules - tools Reflections on governance Rules and tools for interaction Operative plans for systematic collaboration (POCS): used in several Regions to manage and rule interactions between MA and EA In Lombardy Region specific technical meetings have been organized among Independent assessment , MA, EA to encourage synergy and share both assessment methodology and useful data. Crucial role of EA in coordinate the activity. Reflections on governance Umbria Region developed several tools for improving environmental monitoring performance: -Environmental Regional Framework and Regional Catalogue of indicators (permanent working group) - Regional task force for testing VAS provisions with Province and Municipalities - Intranet area on regional website for exchanging information and experiences among public administrations -Web space for publishing all monitoring documents -Public events for disseminating information on the advancement state of the ERDF programme and on its environmental performance Crucial points by experience - difficult access to environmental data and consequent demanding calculation of essential indicators (air, water, soil) - fragmentariness of institutional actors holding data (heterogeneous and uncomparable information resources: call for common regional or national directives) - complexity of linking performance indicators (and monitored measure effects) to environmental baseline indicators. - assessing negative effects of the programme (no data available) - excessive burden lying on beneficiaries in providing information on funded projects (no common activities in gathering information EA/MA) - keeping into proper account specific territorial issues Demands for environmental monitoring (what do we need for improving monitoring and SEA efficiency?) - design the governance structure for environmental monitoring and specific tools for supporting it - establish a procedure for maximizing monitoring efficiency all along the implementation phase of the programmes (roles, responsibilities, itinera) - guarantee EA and ARPA effective role - define duty of transmitting some specific information on projects while submitting proposals (for beneficiaries) - temporalize monitoring activities as to allow indicators to progressively get thorough mara cossu [email protected] bruna kohan [email protected]