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8. The overall long-term objective of this project is to foster sustainable institutional and financial arrangements for effective environmental management and protection of the Black Sea, in accordance with the Black Sea Strategic Action Plan. This project is composed of four objectives:
OBJECTIVE 1: CONSOLIDATION OF THE POLICY STRATEGY TO IMPLEMENT THE BLACK SEA STRATEGIC ACTION PLAN;
OBJECTIVE 2: PREPARING THE TECHNICAL IMPLEMENTATION OF THE BLACK SEA STRATEGIC ACTION PLAN;
OBJECTIVE 3: SUPPORTING PUBLIC INVOLVEMENT TO FACILITATE THE ADOPTION OF THE BLACK STRATEGIC ACTION PLAN;
OBJECTIVE 4: DEVELOPING THE FINANCING OF THE BLACK SEA STRATEGIC ACTION PLAN.
9. The last component of the project is the financing of the staff and the operating costs which are needed to manage it in the Programme coordination Unit. These first four objectives require a set of activities designed to overcome the barriers to the adoption of the Strategic Action Plan as described in the previous section. They form the basis of the current proposal.
PROJECT DESCRIPTION
10. The project consists of four interdependent components which address the major objectives described above. The project, and the costs of implementing each activities, have been estimated and included in the attached tables (see Annex 1). In many cases, supplementary donor contributions have already been assured and are indicated together with the source of funding.- Donor contributions in an advanced stage of negotiation are shown in square brackets. These tables will thus constitute the central element in developing the project workplan (see Annex 1).
OBJECTIVE 1: CONSOLIDATION OF THE POLICY STRATEGY TO IMPLEMENT THE BLACK SEA STRATEGIC ACTION PLAN
11. In order for the management regime for the Black Sea commons to become effective, there is a need to consolidate a modern legal and policy structure. The Black Sea has a legally binding Convention -- the Bucharest Convention on the Protection of the Black Sea Against Pollution -- which was ratified by all legislative assemblies of the Black Sea countries and came into force in early 1994. It also benefits from a strong policy agreement: the Odessa Ministerial Declaration on the Protection of the Black Sea was prepared by the six Black Sea Governments, assisted by UNEP, and signed in April 1993. Some of the Protocols to the Bucharest Convention are still incomplete and their absence leaves important gaps in the legal framework for managing the Black Sea. These gaps will be filled as a result of actions proposed in the context of the Istanbul Convention itself. Regarding policy, the Odessa Declaration reflects the modern environmental management concepts of Agenda 21 but limits itself to a short-term three-year pragmatic programme of urgent actions, most of which should be completed by mid-1996. UNEP was assigned the role of reviewing its implementation.
12. In addition, the UNDP/GEF pilot phase project is currently assisting the Black Sea Governments to develop a medium/long-term Black Sea Strategic Action Plan. In this context, the Governments have recognized the need to consolidate these two policies (the SAP and the Odessa Declaration), as reinforced during the last Task Force meeting in Istanbul (June 24-28,1996) and to develop corresponding National Action Plans for the Black Sea.
Finalisation and endorsement of the Black Sea SAP
13. The activities to be carried out under this component will enable the draft Black Sea Strategic Action Plan (formulated during the Pilot Phase project) to be adopted by the Black Sea governments and consolidated, together with the Odessa Ministerial Declaration, into a single policy framework to be approved at ministerial level. There will also be a need to formulate National Black Sea Action Plans with clearly defined priorities and a workplan for implementation. Currently, the Black Sea nations are devoting substantial efforts to update their environmental laws and regulations. Likewise, local coastal authorities are increasingly active in planning specific actions for the protection of their coastal resources. These efforts, along with legislative and sectoral policy measures, need to incorporate the key common aspects of the regional approach.
14. The specific activities envisaged are:
Facilitating a Black Sea Basin approach
15. Many programmes are currently carried out in the Black Sea Region without clear coordination. At a meeting in March 1996, the three GEF Implementing Agencies have highlighted the following projects and programmes: UNDP/UNOPS are implementing the Danube and the Black Sea Pilot Phase GEF projects as well as the Dniper PDF GEF project. The World Bank is implementing the Danube Delta Biodiversity project. The Netherlands are contributing to a Sea of Azov project and the World Bank is working on the Lower Don as part of the environmental loan to the Russian Federation. In addition, there are several biodiversity projects in the Region (GEF UNEP and/or World Bank) as well as World Bank and EBRD pre-investment studies.
16. It was agreed that a Basin wide meeting should be held which will allow to review on-going activities, in particular in the context of the implementation of the Strategic Action Plans which should take place in the near future. This would help to overcome some of the difficulties which are being faced in the planning of future GEF International Waters activities in the Region.
17. Therefore, one specific activity is proposed to initiate this approach:
(a) Workshop to identify the necessary steps to develop a basin wide approach for the protection of the Black Sea, consistent the GEF Operational Strategy on International Waters.
OBJECTIVE 2: PREPARING THE TECHNICAL IMPLEMENTATION OF THE BLACK SEA STRATEGIC ACTION PLAN
18. The activities carried out under this second objective will reinforce the regional capability to implement the strategy to be developed under the first objective. The Pilot Phase project made important advances in this respect through an intensive programme of capacity building. The result is a balanced network of institutions with the means to work together on themes of direct relevance to the implementation of regional policy and laws. The present objective requires this network to be put to use in ensuring implementation of the Convention and compliance with its Protocols, as well as technical backstopping of the Istanbul Commission itself. It is important to note that the project activities will only cover part of the added cost of extending national programmes to the regional dimension. Additional funds needed will be covered through parallel funding by the CEC and by the contributions of the Governments themselves. The CEC Tacis and Phare programmes are assuming an increased role in funding, as confidence builds in the viability of the programme.
19. Compliance is one of the most important issues in managing the commons. Compliance with pollution control measures can only be assessed by the long-term monitoring of key pollutants and their effects. The data exchanged for this purpose must be fully validated by the application of strict quality assurance/quality control measures. The US $2 million investment during the pilot phase on enhancing the capacity of regional laboratories should serve as the starting point for the integration of a regional monitoring network based upon compatible national networks and a common quality control programme. At a local level, compliance with the national/regional emission standards will also require the enhancement of the capacity of pollution inspectors to make valid measurements and apply them consistently. Support from bilateral donors will be sought to assist countries with the work of the inspectorates.
20. In the case of oil-related incidents and the application of the MARPOL Convention, a special strategy will be required to ensure compliance. This will rely heavily on "event monitoring and reporting" (checking on ship's equipment and operational spills and discharges). A workshop will be the first step towards a regional policy for ensuring such compliance. In parallel, a full survey will be conducted of current practice regarding port reception facilities for ballast water and ship-derived solid waste. The survey will be implemented by IMO and co-financed by the European Union (Tacis). The work will include preliminary investigations on best available technology for the elimination of opportunistic species from ballast waters. Work on risk reduction by exploiting improved navigation technology in straits adjacent to the Black Sea, will be addressed and involve the private sector.
21. The specific activities planned will allow to:
Coordination, information and data exchange mechanism
22. The Governments have expressed their satisfaction with the network of Working Parties and Activity Centres established under the GEF pilot project in support of the Bucharest Convention and the Odessa Ministerial Declaration. The support requested from the GEF does not cover the running costs of the network nor of the Activity Centres themselves. It will assist the network to address technical problems related to the implementation of the Action Plan through the sponsorship of annual Working Party meetings for training, data exchange and project preparation. The following fields will be covered:
23. The support provided using GEF funds will be catalytic only. Fundraising activities will continue in order to ensure a wider role of the Activity Centres in the programme. Interest has been shown in sponsorship from the Phare programme (ACs 1 & 6), the Tacis programme (ACs 3, 4 & 5) and private industry (AC 1). A Black Sea Fisheries Convention (under preparation) may also benefit from the work of the Fisheries Activity Centre.
24. Support for the integration of the Istanbul Commission Secretariat is an important feature of goal 2.2 Specific assistance will be offered in office management, improvement of communications through the establishment of more appropriate INTERNET facilities (server, home page, connection of all National Coordinators and those focal points not yet on line) and the further development and regular updating of the Black Sea information system and GIS. For their part, the Governments are already committed to the stepwise staffing of the Secretariat within joint facilities with the PCU.
25. The activities to be conducted within goal 2.2 will allow to:
OBJECTIVE 3: SUPPORTING PUBLIC INVOLVEMENT TO FACILITATE THE ADOPTION OF THE BLACK SEA STRATEGIC ACTION PLAN:
26. Participation of all sectors of society is an essential requirement for the development of sustainable policies in the region. It requires the development of education projects, transparent and participatory decision making procedures and open rules on access to administrative and judicial procedures.
27. There will be a need to present the public with convincing arguments on the need for continuous long-term efforts to manage and protect the Black Sea and to raise awareness of the issues addressed by the Black Sea Action Plan and for promoting the work of the Black Sea Commission. The NGOs will have a particularly important role in this work. Activities to ensure the wider public participation in the project will be carried out in order to achieve this essential goal in conformity with the GEF Operational Strategy.
28. Municipalities will be closely involved in the implementation of this Strategic Action Plan. Both existing mechanisms will be developed for this purpose. Black Sea Club of Cities, as well as new new mechanisms will be cooperate nationally and with municipalities in other countries and regions. For its part, the CEC (Phare and Tacis) have agreed to provide additional support for the public awareness campaign which will accompany the official launch of the Black Sea Action Plan. It will also continue to support certain NGO training activities.
29. The detailed activities will be the following:
OBJECTIVE 4: PREPARING THE FINANCING OF THE BLACK SEA STRATEGIC ACTION PLAN
30. The ultimate success of the Black Sea Action Plan will depend largely on the development and implementation of a cost-effective strategy for financing environmental actions and investments. In this process, and in close cooperation with Government authorities, the role of the Black Sea Environmental Programme should consist of the following two inter-connected elements:
31. The first element, relating to strategic planning of investments, has already largely been achieved with the preparation of national and regional Black Sea Environmental Priorities Studies (BSEPS) of the GEF pilot phase project. With the completion of BSEPS and Black Sea regional and national action plans, a strategic and policy framework will have been established, thereby providing criteria through which Black Sea-related environmental actions and investments may be judged. This framework will provide a useful means of evaluating the relative priority of alternative investment options, and an umbrella for helping to coalesce donor and IFI support for a high-profile regional cause.
32. The second objective of the present project will therefore focus on the second element outlined above. It is designed to respond to the identified need both for additional financial resources to be mobilized from within the region as well as for available donor resources to be effectively channeled towards well-identified, high priority demonstration projects and investments. Specifically, activities under this objective will include a selection of demonstration projects and environmental investments, developed in accordance with the priority framework outlined above, to be prepared and presented to donors and IFIs.
A well developed portfolio of Black Sea environmental investments, reflecting national priorities for presentation to a mid-1997 conference.
33. The process followed by the BSEP during the pilot phase has involved moving from detailed national and regional assessments through to the preparation of regional, and eventually national, action plans. Throughout this process, and particularly in the course of preparation of BSEPS, a large number of investment possibilities are being brought to light. At the same time, both national and regional priorities with respect to the issue are being clarified. Finally, a draft Black Sea Strategic Action Plan (SAP) has now been prepared. This document was based upon a full Transboundary Diagnostic Analysis (reflecting the new requirements of the International Waters chapter of the GEF Operational Strategy). The Black Sea SAP will not be fully formulated and effective without detailed commitments which will have to be reflected into the National BS SAP. Only this type of analysis will allow to define the baseline for future incremental costs of possible GEF support.
34. It is critical that the process of attracting and coordinating external sources of support for addressing Black Sea environmental degradation be carefully tied to the findings and conclusions of the above assessment/action planning process. A sub-regional donor meeting of the IFIs (in coordination of the Project Preparation Committee, will be hosted by the Black Sea Commission Secretariat. In this way, the sub-regional and thematic expertise developed by the GEF project will be linked to investment identification, pre-feasibility and financing identification process. In addition, the investment prioritization and identification processes and the process of locating and putting together financial support packages would also be tied closely together. Perhaps most importantly, both national and regional priorities could be jointly addressed in this manner. Given the above, the present component will:
Assessment of a mechanism to provide sustainable financial support to the Black Sea programme:
35. As the GEF-BSEP has gathered momentum, a new and imminent danger to the overall process has emerged. The implementation of newly ratified legal and policy agreements requires a sustainable mechanism of regionally-based financial support which does not rely upon haphazard voluntary contributions. Thus, although the Convention for the Protection of the Black Sea Against Pollution (Bucharest Convention) is fully ratified, the Contracting Parties are unable to implement it as they lack a financial mechanism for sustaining its Secretariat. Similar problems could emerge with implementation of the Black Sea Action Plan, particularly its incremental cost components. This problem - the financing of commons management regimes - has dogged regional programmes worldwide. It is thus a problem of global dimensions. Who is to apportion and finance the incremental costs of commons management?
36. A Black Sea Environmental Fund could represent a sustainable source of finance for addressing environmental problems of regional and global significance. Such a fund could be self-sustaining, managed regionally and an eventual source of capital for environmental investments. The proposed regional fund could be financed primarily through common economic instruments applied on a nation-by-nation basis across the region. The purpose of the fund would be to ensure the financial sustainability of international cooperation for the Black Sea by providing a source of financial support for activities of international concern. These issues represent the incremental elements of the ongoing programme, i.e., the 'commons' issues which cannot be dealt with by any single state.
37. Such a funding mechanism was not planned at the time the Black Sea Environmental Programme (BSEP) was approved, but it has since emerged as an innovative possible solution to the crucial problem of financing. Following support shown for the concept at a number of regional and international fora, in 1995 a series of six consultation workshops was held, one in each Black Sea coastal country, with finance from a GEF-PDF block B grant. The purpose of the meetings was to determine: (i) the degree of interest on the part of national governments in the Fund proposal and in the possibility of obtaining further GEF funding for a detailed feasibility study on establishing the Fund, and; (ii) the preliminary views of different parts of government concerning the Fund proposal and its prospects for approval at the national level. Each workshop reached the conclusion that the idea of an economic instrument-based regional environmental fund for the Black Sea should be developed through an in-depth feasibility study.
38. Activities under the sub-objective are aimed at demonstrating the feasibility of a Black Sea environmental fund as a mechanism to provide a sustainable source of financial support for the of Regional management the Black Sea environment. The following specific activities will be undertaken:
Rationale for GEF Support
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