Vodic-Guide

OSCE’s ENVIRONMENTAL LEGISLATION GUIDE - FOR EVERYONE - OEBSov VODI» KROZ EKOLO©KO ZAKONODAVSTVO - ZA SVAKOGA -

OSCE’s ENVIRONMENTAL OEBSov VODI» KROZ EKOLO©KO

LEGISLATION GUIDE - FOR EVERYONE - HOW TO SUPPORT ENVIRONMENTAL LEGISLATION AND INSTITUTION BUILDING Good practice example and successful case study from Serbia (Federal Republic of Yugoslavia) ZAKONODAVSTVO - ZA SVAKOGA - KAKO PODRŽATI IZRADU ZAKONA ZA ZAŠTITU ŽIVOTNE SREDINE I FORMIRANJE MINISTARSTVA Dobar primer iz prakse i analiza uspešnog projekta iz Srbije (Savezna Republika Jugoslavija) • • • • • •

INDEX SADRŽAJ 1 PROLOGUE PROLOG 9 OSCE Footsteps - Otisak OEBS-a 9 OSCE in the FRY and Environment - OEBS u SRJ i životna sredina 10 Introduction - Uvod 11 2 SUBSTANCE SUŠTINA 13 Programme proposal - Predlog programa 13 Programme, as precondition for development - Program kao preduslov razvoja 14 3 TECHNOCRATS TEHNOKRATE 16 Algorithm of the programme - Algoritam programa 16 4 ANALYSTS ANALITIČARI 18 Explanation - Objašnjenje 18 5 IMAGINATIVE MAŠTOVITI 24 How to prepare a good law - Kako pripremiti dobar zakon 24 6 GET CONCERNED ZAMISLITE SE 26 7 FIRST LAYER PRVI NIVO 28 Donors - Donatori 28 8 SECOND LAYER DRUGI NIVO 29 Joint Working Group - Zajednička radna grupa 29 List of experts - Lista eksperata 30

9 THIRD LAYER TREĆI NIVO 31 Media campaign - Medijska kampanja 31 The Start - Početak 32 Billboards and color ads - Panoi i kolor oglasi 33 B&W ads and picture post-cards - C/B oglasi i razglednice 45 10 FOURTH LAYER ČETVRTI NIVO 49 Public consultation - Javna rasprava 49 11 FIFTH LAYER PETI NIVO 53 Lobbying - Lobiranje 53 12 EVALUATION PROCENA USPEHA 54 Pollution requires solution - Zagađenje zahteva rešenje 54 13 PARTICIPANTS UČESNICI 60 Main interlocutors - Glavni sagovornici 60 Contracted participants - Ugovorni partneri 61 NGOs - NVOi 61 14 EPILOGUE EPILOG 62 We all wish to - Ono što želimo je 60 15 ATTACHMENTS PRILOZI Post-card set - Komplet razglednica Inner cover DVD & mini CD Inner cover



OGLEDALO Look into your eyes and see Pogledajte se u oči i vidite whether you have done enough to protect OUR environment, for the sake of the future of YOUR children? da li ste učinili dovoljno da zaštitite NAŠ životni prostor radi budućnosti VAŠE dece?



OSCE FOOTSTEPS As head of OSCE Mission to the Federal Republic of Yugoslavia, I have promoted, in accordance with our Mission mandate, a close assisting relationship with the state authorities in the fields of democratization, pro- tection of human rights, police reform, media reform, environmental protection and awareness and judi- cial and legislative development. In this context, the Mission assists and advises on the full implementation of legislation in areas covered by its mandate, and monitors the proper functioning and development of dem- ocratic institutions, processes and mechanisms. Specifically in the area of environ- mental reform and awareness, the Mission has achieved much in pro- moting the recent adoption of an Environmental Law in line with inter- national standards, which provides for the creation of new Environmental Ministry in Serbia. In the last year, the Mission also initiated a public awareness campaign on environmen- tal issues in Serbia, as part of a wider debate on the Law on the Environ- mental Protection. Overall the Mission sees the pro- motion of human and sustainable security as an overriding goal. The efforts undertaken by the state authorities last year have allowed so much progress in reforming legisla- tion and institutions, that the prom- ise of a representative and sustain- able future has become a feasible objective. The OSCE, for its part, will continue to support and assist in the most appropriate fashion, so that this objective may be realised. Stefano Sannino , Head of the OSCE Mission to the FRY (2001-2002) OTISAK OEBS-a Kao šef Misije OEBS-a u Saveznoj Republici Jugoslaviji, ja sam, u skladu sa mandatom Misije, radio na una- pređivanju bliske saradnje sa pred- stavnicima države na polju demokra- tizacije, zaštite ljudskih prava, refor- me policije, reforme medija, zaštite životne sredine i podizanju svesti gra- đana, kao i na razvoju sudstva i zako- nodavstva. U tom kontekstu, Misija je pomagala i podržavala punu primenu zakona u oblastima koje su pokrivene njenim mandatom uz praćenje isprav- nosti rada i razvoja demokratskih institucija, procesa i mehanizama. Posebno na polju reforme sistema zaštite životne sredine i jačanju svesti o ovom problemu, Misija je postigla mnogo u podršci na izradi i usvajanju Zakona o sistemu zaštite životne sre- dine, usklađenog sa međunarodnim standardima, koji je omogućio pos- tavljanje novog ministarstva vlade Republike Srbije za prirodna bogats- tva i životnu sredinu. Tokom protekle godine, Misija je takođe pokrenula javnu kampanju o pitanjima životnog okruženja, kao deo šireg programa javne rasprave u Srbiji o predlogu no- vog Zakona o zaštiti životne sredine. Primarni cilj sveukupnog delovanja Misije jeste podrška ostvarenju dugo- ročne ljudske bezbednosti. Napori koje su tokom prošle godine pre- duzeli predstavnici vlasti obezbedili su veliki napredak u reformi zakono- davstva i institucija što je učinilo obećanje o uzornoj i održivoj buduć- nosti realnim. OEBS će, u okviru svo- jih mogućnosti i na najbolji mogući način, nastaviti da podržava i po- maže aktivnostima koje će učiniti da se ovi ciljevi ostvare. Stefano Sannino , šef Misije OEBS-a u SRJ (2001-2002) PROLOGUE PROLOG

OSCE IN THE FRY AND ENVIRONMENT Ever since Organization for Security and Cooperation in Europe, Mission to the FRY began (again) its work, in 2001, there has been much disbelief and won- ders at the engagement of this interna- tional political organization in the field of the environment. Care for the environ- ment or \"ecology\", as it is commonly known, was traditionally associ- ated with enthusiasts, citizen groups, NGOs and very specific, mostly naturalist, expert institutions. It was not uncommon to look upon activists in the field with some distrust and even derision. Environmental issues were considered only in terms of consequences: physical pollution of space without awareness of the complexity of the problem, its essence and real causes. Namely, in order to achieve the final goal: balanced development that takes into account all our needs, from material to spiritual ones and, eventually, the need for a conserved environment - but also the needs of others as well as our impact on our own environment – it is necessary to achieve a high level of awareness in all individuals, political will to solve the problem, insti- tutional capacity, appropriate expert skills and economic strength. That clearly points out to the fact that the environment is above all a social issue and a social category that emerges in many shapes and forms (educational environment, informational environment, cultural environment, etc.) and which should be used in order to achieve eco- nomic development coupled with conservation of natural values and biodiversity, i.e. the nature as a whole. Based on the above, we can accurately determine the place and the role of the Organization for Security and Cooperation in Europe in the process of building trust and cooperation among different interest groups within a country and also in very important communication between neighbouring, and not only, neighbouring regional and European countries. Environmental components are of the key importance for building up environmental security and cooperation on the issues of mutual interest that have as their goal fair distribution and use of common natural resources and protection of joint living space. By reaching understanding over uncon- tested issues such as, for example, protection of shared waters or flora and fauna in border areas, countries can pave the way towards coop- eration in other fields. The attitude of a society and state towards environmental issues and a basic human right to a healthy life shows how mature and developed that society is. OSCE Mission to the FRY is one of the first to implement such a complex approach to environmental issues, for which it received sup- port both from the Organization itself and the host country. Such a framework for the Mission's activities, with strong emphasis on politi- cal and security aspect of the environment, has gained full under- standing and wide support from the international community. Dušan Vasiljević – OSCE Mission to the FRY OEBS U SRJ I ŽIVOTNA SREDINA Od samog (ponovnog) početka rada Misije Organizacije za evropsku bez- bednost i saradnju u SRJ 2001. godine bilo je neverica i nedoumica oko anga- žovanja ove međunarodne političke organizacije u oblasti životne sredine. Briga o životnom okruženju ili »ekologi- ja«, kako se to popularno naziva, tradicionalno je bila rezervisana za entuzijaste, grupe građana, nevladine organizacije i vrlo specifične, najčešće prirodnjačke, ekspertske institucije. Neretko se na aktiviste iz ove oblasti gledalo sa izvesnom dozom podozrenja, a ponekad i podsmeha. Problem životne okoline je sagledavan samo u posledičnom delu: fizičkom zagađenju prostora pri čemu nije posto- jala dovoljna svest o složenosti ovog problema i njegovoj suštini i pravim uzrocima. Naime, da bismo postigli krajnji cilj, usklađeni razvoj koji vodi brigu o svim našim potrebama, od materijalnih do duhovnih pa, konačno, i potrebi za očuvanim životnim prostorom, ali i o potrebama drugih i o našem uticaju na sopstveno okruženje, neophodno je postići visok nivo razvijenosti svesti svakog pojedinca, političku volju da se problem reši, sposobnost institucija društva, nji- hovu stručnu spremnost i ekonomsku moć. To jasno ukazuje da je životna sredina pre svega društveno pitanje i socijalna kategorija koja ima puno pojavnih oblika (obrazovni životni prostor, informativni životni prostor, kulturno životno okruženje, itd.), koju možemo koristi- ti kako bi se postigao ekonomski napredak, ali uz očuvanje prirodnih vrednosti i biljnih i životinjskih vrsta, odnosno prirode u celini. Iz ovoga se može prilično precizno naslutiti mesto i uloga Organizacije za evropsku bezbednost i saradnju u procesu izgradnje poverenja i saradnje između različitih interesnih grupa unutar jedne države, ali i u izuzetno važnoj komunikaciji između pojedinih susednih, i ne samo susednih, država u regionu i Evropi. Elementi životne sredine su od suštinskog značaja za izgradnju ekološke sigurnosti, odnosno sarad- nje na pitanjima od zajedničkog interesa koja imaju za cilj pravednu raspodelu i korišćenje zajedničkih prirodnih resursa i zaštitu zajed- ničkog životnog prostora. Uspostavljanjem razumevanja oko nes- pornih pitanja kakva su, na primer, zaštita zajedničkih voda ili biljnog i životinjskog sveta u pograničnim područjima, otvara se put za sarad- nju i na drugim poljima. Odnos jednog društva i države prema pitanjima životne sredine i osnovnom ljudskom pravu na zdrav život pokazuje zrelost i stepen razvijenosti tog društva. Misija OEBS-a u Jugoslaviji je jedna od prvih koja je primenila ovakav složeni pristup pitanjima životnog okruženja za koji je dobije- na puna podrška same Organizacije i zemlje domaćina. Takav okvir rada Misije, sa jakim akcentom na političko-sigurnosni aspekt životne okoline, obezbedio je puno razumevanje i široku podršku međunaro- dne zajednice. Dušan Vasiljević – Misija OEBS-a u SRJ 10 PROLOGUE PROLOG

INTRODUCTION Over recent decades, it became clear that our global environment is under serious threat as a results of human activities – leading to the pollution of air and water, the over-use of natural resources, such as timber and fish stock, the destruction of animal and bird species and their habitats and the growing menace of climate change, among the other problems. Natural resources are not inexhaustible. Reducing consumption of the resources that are running out, and finding other ways of main- taining and improving living standards through new policies, tech- nologies and innovations is an unique prerogative. The Tenth OSCE Economic Forum that took place in May 2002 in Prague highlighted the topic of “Environmental Security” as the one of the most important issue in international affairs which must be taken in consideration when structuring regional development policy, emphasizing sustainable management over (shared) natural resources. Protecting common natural heritage calls for partnership – at European, national and local level, between public authorities, busi- ness, lobby groups and non-governmen- tal organizations, as well as among citi- zens themselves. Forests, rivers and soils are all natu- ral resources that need special atten- tion. Forests are also an economic asset, yet some two thirds of Europe’s trees are threatened, and damage from forest fires is growing in the south. The EU wants to see national and regional plans for sustainable forest manage- ment and protection. In 1992, when they adopted the Treaty on European Union in Maastricht, EU leaders recognized that the environ- ment is not an isolated issue – deci- sions taken in other areas, ranging from transport and agriculture to internation- al trade and development, affect it. They declared that all Union policies and activities must in future take account of the environment, and this “integrated “ approach remains the guiding principle for the years ahead. Above all, in every sphere, the Union is committed to the principle of “sustain- able development” finding that elusive balance between protecting the envi- ronment, ensuring economic progress and social development. Its overall aim UVOD Tokom poslednjih decenija postalo jasno da je naše globalno okru- ženje pred ozbiljnom pretnjom posledica ljudskih aktivnosti koje vode ka sveobuhvatnom zagađenju voda i vazduha, iscrpljivanju prirodnih bogatstava, kao što su šumski i riblji fond, uništavanju biljnih i živo- tinjskih vrsta i njihovih staništa i rastućoj pretnji globalnim zagreva- njem. Prirodna bogatstva nisu neiscrpiva. Smanjenje korišćenja resursa kojih ima sve manje i pronalaženje drugih izvora radi očuvanja i poboljšanja životnog standarda, uz pomoć nove politike razvoja, novih tehnologija i inovacija, od posebnog su značaja. Deseti OEBS-ov Ekonomski forum, održan maja 2002. godine u Pragu, ukazao je na pitanje »Ekološke sigurnosti« kao jednog od najvažnijih elemenata međunarodne saradnje koji se mora uzeti u obzir prilikom planiranja regionalnog razvoja sa jakim akcentom na održivo upravljanje (zajedničkim) prirodnim bogatsvima. Zaštita zajedničkog prirodnog nasleđa zahteva saradnju na evrop- skom, nacionalnom i lokalnom nivou, među institucijama vlasti, poslovnim partnerima, grupama za uticaj, nevladinim organizacijama kao i među samim građanima. Šume, reke i zemljišta su prirodna bogatstva kojima je potrebna posebna pažnja. Šume imaju ekonomski značaj, ali i pored toga dve trećine svih šuma u Evropi je ugroženo, a porast opasnosti od požara u južnim predelima raste. Evropska unija želi da vidi nacionalne i regio- nalne planove održivog uprav- ljanja i zaštite šuma. U 1992. godini, kada su u Mastrihtu usvojili povelju o Evrop- skoj uniji, lideri evropskih zemal- ja su utvrdili da životna sredina nije izolovano pitanje – odluke donesene u drugim oblastima, od saobraćaja i poljoprivrede do međunarodne trgovine, imaju uti- caja na nju. Oni su tada izjavili da politika i aktivnosti EU moraju u budućnosti voditi računa o životnom okruženju i taj »inte- grisani« pristup će biti vodeći princip narednih godina. Iznad svega, u svim sferama, Unija se obavezala na koncept »održivog razvoja« koji predstavlja tananu ravnotežu između zaštite životnog PROLOGUE PROLOG 11

is to improve the quality of life and at the same time to protect the environment so that future generations, in all parts of the world, can develop and prosper. It is strongly recognized that economic growth, social cohesion and environmental protection must go hand in hand. Growing public demands create an expanding market for environmentally friendly goods and services, generating jobs and growth, and in turn provid- ing the incentive for further technological innovation and investment. Poverty itself can be a huge source of environmental damage, because very poor people have no option but to exploit natural resources (forests, waters, wild animals, etc.) in order to survive, and are excluded from system for managing waste. The EU recognizes that industry’s support for environmental pro- tection is crucial. This means consulting business in the drafting of new legislation, co-financing research initiatives, and offering incen- tives to companies who improve their environmental performance. However, prices must start to reflect more accurately the wider envi- ronmental costs of goods and services. This will mean adjusting taxes to pay measures to offset the negative impact on environment and introducing the “polluters pay” principle. The candidate countries joining the Union must adopt and apply EU environmental laws as a precondition of membership. The European Commission has insisted that adopting EU laws on the environment (known as the “acquis) is not an optional extra, and argues that by building the foundations for sustainable development at this stage, the countries of central and eastern Europe will be able to avoid the west’s most damaging and expensive environmental mistakes. At last but not least, the terror events of 11 September 2001 illus- trated the need for a common civil protection strategy, with networks to counter the threat of bioterrorism, as well as chemical accidents or natural disasters. Protecting our global environment is not a job for individual governments alone. Effective action is needed to improve the quality of people’s lives at the same time safeguarding nature and combating problems like climate change. This calls for cooperation and partnership throughout society and at the international level. The part of the text is an abstract from the “Choices for a greener future” booklet – published by EC, in February 2002. prostora i ekonomskog i društvenog razvoja. Sveopšti cilj je poboljšanje kvaliteta života, ali uz odgovarajuće mere zaštite prirode tako da buduće generacije, svuda u svetu, mogu i same imati pros- peritet i razvoj. Uočeno je da su ekonomski rast, društveno jedinstvo i zaštita životnog prostora tesno povezani. Rastuće društvene potrebe stvara- ju tržište za ekološke proizvode i usluge, stvarajući tako nove poslove i razvoj i otvarajući prostor za inovacije i investicije. Siromaštvo može biti izvor velikih ekoloških šteta zato što veoma siromašni narodi nemaju drugih mogućnosti do iscrpljivanja prirodnih bogastava (šuma, voda, divljih životinja, itd.) u cilju golog preživlja- vanja pri čemu su isključeni iz sistema upravljanja otpadom. EU shvata da je učešće industrije u zaštiti životne sredine od suštinskog značaja. To znači neophodnost konsultovanja profitnog sektora u procesu izrade novih zakona, sufinansiranju istraživanja i u obezbeđivanju povlastica za preduzeća koja su poboljšala zaštitne- mere. Međutim, cene moraju da odslikavaju spektar troškova za obezbeđivanje ekoloških usluga i roba. To znači potrebu usklađivanja poreske politike koja će umanjiti negativne efekte proizvodnje na životnu sredinu, kao i uvođenje principa “zagađivač plaća”. Zemlje kandidati za ulazak u EU moraju usvojiti i primeniti evropske ekološke zakone što je preduslov za članstvo. Evropska komisija insistira da usvajanje paketa ekoloških zakona (poznatih kao “aki”) nije pitanje izbora objašnjavajući svoj stav da će izgradnja osnova za održivi razvoj u ovoj fazi omogućiti zemljama centralne i istočne Evrope da izbegnu najrazornije i najskuplje ekološke greške zapadnih zemalja. Konačno, teroristički napad od 11. septembra 2001. jasno ukazu- je na potrebu zajedničke strategije zaštite svih građana, sa mrežama koje će zaustaviti pretnje bioterorizmom, hemijskih nesreća ili prirod- nih nepogoda. Zaštita globalne životne sredine nije posao samo za poje- dinačne vlade. Efikasna akcija je neophodna da se poboljša opšti životni standard čuvajući istovremeno prirodu i boreći se sa problemima kakav je globalno zagrevanje, na primer. To ukazuje na potrebu partnerstva i saradnje celog društva i međunarodne zajednice. Deo teksta je sažetak iz publikacije “Izbori za zeleniju budućnost”, koju je izdala Ev- ropska komisija, februara 2002. godine. 12 PROLOGUE PROLOG

PROGRAMME PROPOSAL Name of the Programme SUPPORT TO ENVIRONMENTAL LEGIS- LATION AND INSTITUTIONAL STRUC- TURING IN SERBIA (FRY) Programme duration 12 months Area of implementation Serbia (FRY) Total Budget EUR 539,000.00 Background The environmental problem must be seen against the background of many years of overall economic, social and political deterioration in Yugoslavia, non-existence of appropriate struc- tures on all levels of governance, poor legislation, poor taxation and environ- mental funding policy, insufficient cooperation with neighboring countries, exclusion from internation- al processes, low level of public awareness, weak non-governmental sector, resulted with grave status of environment and heavy burden for the new authorities. Objectives The programme is aimed to assist Serbian government to produce coherent and contemporary law on environment compatible with European standards and to set up appropriate institution that will act as a tool for proper implementation of the law and for generating and man- aging environmental development policy. The Ministry and the Law should obtain Regional cooperation in Southeastern Europe and should enable consistent and sustainable (local and national) development. A proper environmental policy will also contribute to the EU accession process. Output Law on Environment and Serbian Ministry for Environment and Natural Resources PREDLOG PROGRAMA Naziv programa PODRŠKA LEGISLATIVI I INSTITUCIONALNOJ IZGRADNJI IZ OBLASTI ŽIVOTNE SREDINE U SRBIJI Trajanje programa 12 meseci Mesto primene Srbija (SRJ) Budžet EUR 539,000.00 Osnovni podaci Problemi životne sredine moraju biti sagledani u svetlu višegodišnjeg ekonomskog, društvenog i političkog propadanja Jugoslavije, nepostojanja odgovarajućih struktura uprave na svim nivoima, lošeg zakonodavstva i poreske politike, neadekvatnog finansiranja ekoloških aktivnosti, nedovoljne saradnje sa susednim zemljama, isključenja iz međunarodnih procesa, niskog nivoa opšte svesti i slabog nevladinog sektora rezultirali su alarmantnim stanjem životnog okruženja što je ostalo kao težak teret za nove vlasti. Ciljevi Program ima za cilj da pomogne srpskoj vladi u izradi konzistentnog i savremenog zakona o životnoj sredini, koji je usklađen sa evropskim standardima, i da formira odgovarajuću institu- ciju, odnosno ministarstvo, koje će biti alat za pravovrednu primenu Zakona, kao i za izradu i primenu politike razvoja iz ove oblasti. Ministarstvo i Zakon će omogućiti regionalnu saradnju u jugoistočnoj Evropi, kao i primenu koncepta održivog (lokalnog i nacionalnog) razvoja. Ispravna ekološka politika će olakšati priključenje zemlje Evropskoj uniji. Očekivani rezultat Zakon o sistemu zaštite životne sredine Republike Srbije i Ministarstvo za prirodne resurse i životnu sredinu SUBSTANCE SUŠTINA 13

PROGRAMME, AS PRECONDITION FOR ENVIRONMENTAL SOCIAL AND ECONOMICAL DEVELOPMENT IN FRY Introduction After many years of overall economical, social and political deteri- oration, Yugoslavia was in the situation where hardly any state func- tion is operational, at least not in expected and appropriate way. When environment is in question, the situation was even worse because of the ignorance, negligence of environmental issues, aged industry and destruction during the conflict in 1999. Pursuant to the Constitution of April 27, 1992, the Federal Republic of Yugoslavia is a sovereign state based on the equality of citizens and its member republics, the Republic of Serbia and the Republic of Montenegro. The Federation member republics inde- pendently regulate all matters not defined by the federal constitution as matters within the competence of the Federal Republic of Yugoslavia. The Constitution of the Federal Republic of Yugoslavia prescribes that only the basic principles of environmental protection are within the competence of the federation, while other matters rest within the authority of the republics (Article 77/1992). On the federal level, the Draft Law on the Principles of Environmental Protection has not been adopted, and it contains no new solutions regarding public participation compared to the repub- lic laws on environmental protection (the Serbian law of 1991 and the Montenegrin law of 1996). In addition, the initiative to pass a fed- eral law that would regulate bases and criteria for environmental pro- tection dates back as early as 1993, but this process has since been delayed as it overstepped the authority of the member republics in the effort to attain integral environmental protection. A system of legal rules in the sphere of environmental protection in the Federal Republic of Yugoslavia consisted of more than 150 laws, over 100 other regulations and 52 ratified international treaties. The Federal Republic of Yugoslavia has not, by June 2001, ratified major international treaties with provisions on access to environmental information, public participation and access to justice. Yugoslavia has only ratified the Universal Declaration of Human Rights from 1948, but recently work on the adoption and ratification of interna- tional treaties in the sphere of environmental protection has intensi- fied. In the middle of 1997, the United Nations Framework Convention on Climate Change was ratified. This far only few steps have been taken by the government to implement or evaluate Sofia Guidelines and Aarhus Convention. PROGRAM, KAO PREDUSLOV ZA SOCIJALNO-EKONOMSKI RAZVOJ I RAZVOJ ŽIVOTNE SREDINE U SRJ Uvodne napomene Posle višegodišnjeg, sveopšteg ekonomskog, društvenog i poli- tičkog propadanja, Jugoslavija je bila u stanju gde država nije funkcionisala skoro ni u jednoj oblasti, bar ne na očekivani i zado- voljavajući način. U pitanjima životne sredine situacija je bila još gora usled neznanja, zapostavljanja pitanja životne sredine, oronule indus- trije i razaranja nastalih tokom bombardovanja 1999. godine. U skladu sa Ustavom iz 1992. godine, Savezna Republika Jugosla- vija je suverena zemlja zasnovana na jednakosti svih svojih građana i dve republike članice, Srbije i Crne Gore. Savezne članice, odnosno republike, nezavisno regulišu sve poslove koji nisu u nadležnosti savezne države. Ustav SRJ predviđa da su samo osnove zaštite životne sredine u kompetenciji savezne administracije, dok se sva ostala pitanja regulišu republičkim propisima (član 77/1992). Na saveznom nivou, nacrt zakona o principima zaštite životne sre- dine nije bio usvojen, ali nije ni sadržavao nikakva rešenja o učešću javnosti u procesu donošenja odluka, u poređenju sa republičkim zakonima o zaštiti životnog okruženja (srpski zakon iz 1991. i crno- gorski zakon iz 1996. godine). Uz to, inicijativa za usvajanje ovog nacrta na saveznom nivou koji bi regulisao osnovne kriterijume iz ove oblasti datira još iz 1993, ali je ta procedura u više navrata odlagana jer se zakon, u želji da se postigne integralna zaštita životne okoline, preklapa sa nadležnostima republika. Zakonski sistem iz oblasti zaštite životnog prostora na saveznom nivou sastojao se od preko 150 zakona, preko 100 pravilnika i 52 ra- tifikovana međunarodna sporazuma. Savezna Republika Jugoslavija nije, do juna 2001, ratifikovala glavne međunarodne konvencije koje se tiču učešća javnosti u procesu donošenja odluka, pristupu infor- macijama i pravnoj zaštiti. Jugoslavija je jedino ratifikovala Univer- zalnu deklaraciju o ljudskim pravima iz 1948, ali su se u poslednje vreme aktivnosti na usvajanju i primeni međunarodnih sporazuma iz oblasti životne sredine pojačale. Sredinom 1997. UN Okvirna konven- cija o klimatskim promenama je ratifikovana. Do sada je preduzet samo ograničen broj koraka ka primeni i proceni Sofijskih okvira i Arhuske konvencije. 14 SUBSTANCE SUŠTINA

Goals of the Programme Considering environment as a broad, social issue, the immediate goal was to support Serbian Government in environmental legislation and environmental institutional and capacity building in order to obtain consistent and firm structures, which will be able to create and implement sustainable developing policy compatible with con- temporary international standards. At the same time, improved insti- tutional and legal situation will facilitate cooperation with Monte- negro which already has developed their institutions and legal envi- ronment to a certain level, including delivery of the Law on NGOs. Such institutional and legal set up will help efficient participation of Serbia and FRY to the Regional (Southeast Europe) Programmes. On the other hand, having in mind foreseen constututional changes on the federal level in Yugoslavia, the goal was to start legislative process that will relay on European legal standards and will be least dependent on political turbulences. Objectives 1. Legislation. Support to Environmental Law drafting and its adop- tion. Support to legislation in aim to obtain synchronization between different level of local regulations as well as with international laws. Implementation of international legal documents related to environ- mental issues. Preparation for EU accession process. 2. Institutional building at Serbian level in aim to enable compati- ble structures that will plan and apply environmental policy with ver- tical and horizontal synchronization. Efficient cooperation with respective structures in Montenegro, as well as with international organizations, bodies and structures. Support to environmental strategic and action planning (REAPs, NEAPs and LEAPs). Programme indicators • number and specialization of experts involved; • number of round tables and participants actively involved; • type and quality of amendments or comments made in public assessment process; • number of inspected and adopted amendments by the working groups; • level of harmonization with European standards; • level of comprehensiveness and consistence of the Law; • level of acceptance of the Law in Assembly (affirmative and oppos- ing votes) • level of comprehensiveness and consistence of the ministerial structure and its compatibility with international and regional struc- tures that are dealing with environmental issues. Ciljevi Programa Shvatajući životnu sredinu kao široko postavljenu, pre svega, druš- tvenu kategoriju, prvi zadatak je bio da se podrže napori vlade Republike Srbija na izradi novog Zakona o sistemu zaštite životne sre- dine i na izgradnji novog Ministarstva za prirodna bogatstva i životnu sredinu kako bi se dobile stabilne strukture koje će biti sposobne da kreiraju i primene politiku održivog razvoja, usaglašenu sa savre- menim međunarodnim standardima. U isto vreme, poboljšano stanje u institucionalnoj i zakonodavnoj oblasti će olakšati komunikaciju sa Crnom Gorom koja već ima, do izvesne mere, razvijenu pravnu regu- lativu i institucije iz ove oblasti, kao i Zakon o nevladinim organizaci- jama. Takva jedna institucionalna i pravna postavka će omogućiti efikas- no učešće Srbije i Jugoslavije u programima regionalne saradnje. S druge strane, imajući u vidu pretpostavljene ustavne promene na saveznom nivou, cilj je bio da se pokrene zakonodavni proces koji se oslanja na evropske pravne standarde i koji će najmanje biti podlo- žan političkim promenama. Specifični zadaci 1. Zakonodavstvo. Podrška procesu izrade Zakona iz oblasti životne sredine i njegovo usvajanje. Podrška zakonodavnom procesu je po- trebna da bi se obezbedilo usklađivanje različitih nivoa primene zakona na nacionalnom i lokalnom nivou, kao i da se izvrši usagla- šavanje sa međunarodnom pravnom regulativom. Primena međuna- rodnih ugovora i konvencija koje se odnose na oblast životne sredine. Priprema za proces priključenja EU. 2. Institucionalna izgradnja u Srbiji u cilju osposobljavanja odgo- varajućih struktura koje će planirati i primenjivati politiku razvoja iz oblasti životne sredine uz vertikalnu i horizontalnu sinhronizaciju. Efikasna saradnja sa odgovarajućim institucijama i strukturama u Crnoj Gori, kao i sa međunarodnim telima i organizacijama. Podrška strateškom i akcionom planiranju (regionalni, nacionalni i lokalni ekološki akcioni planovi). Indikatori programa • Broj i specijalnost stručnjaka uključenih u proces • Broj okruglih stolova i aktivnih učesnika na raspravama • Vrsta i kvalitet komentara dobijenih kroz javne rasprave • Broj pregledanih i usvojenih komentara i izmena • Nivo usaglašenosti sa evropskim zakonodavstvom • Nivo razumljivosti i primenljivosti samog zakona • Stepen prihvatanja zakona u Skupštini (broj glasova »za« i »protiv«) • Nivo operativnosti i usaglašenosti strukture ministarstva sa među- narodnim standardima i institucijama koje se bave problemima životne sredine. SUBSTANCE SUŠTINA 15













the internal requirements and external standards for using the Programme in facilitating Accession Process to EU. Upon this final adjustment of the programme, OSCE produced an implementing MODEL that could be used for any similar activity. MODEL was tested and, after final justification, presented to Donors’ community in the process of FUND RAISING. Triggering the IMPLEMENTATION is, in fact, launching different pro- gramme layers in certain time frame in five phases: Preparatory process, Drafting Activities, Awareness Campaign, Public Consulta- tion, Lobbying and Final Draft. As per timetable, Serbian government prepared the first draft of the Environmental Law during October 2001, engaging a group of local experts. At that stage, OSCE obtained technical support by engaging 8 international environmental experts (UK, UNEP, UNECE, Ireland, Finland, Slovenia and Italy) to assess the draft. Apart from that, we have received in kind expertise form Sweden, WB, EBRD and EC; in all 26 international experts were involved in the drafting process. At the beginning of December 2001, the Joint Working Group met to discuss comments and recommendations to the Draft, after which, on the December 31, Directorate for Environmental Protection issued the second Draft. Hand in hand with this, from the 1 of December st 2001, we launched extensive media campaign in aim to mobilize general public and concerned groups for active participation in the legislation. Media campaign was to raise awareness on the environ- mental issues but to point out possible problem resolution; the Law and Ministry, as strategic steps towards sustainable development. The public participation was obtained through 31 round tables all over the Serbia, and has started on January 9. Estimated number of direct round tables’ participants is about 3000 persons. However, the involved public, experts’ teams and institutions, heavily enlarged number of persons involved. All of the Local Authorities (160) were supplied with the working papers and were encouraged to comment the draft. A huge number of messages, comments and assessments have been delivered to the Directorate and expert’s group. The cities where the round tables were held cover the population of over 5,000,000 inhabitants, including very sensitive multiethnic areas such as Bujanovac in South Serbia and Novi Pazar in Sandžak. International experts (26) delivered, so far, 234 pages of their com- ments on the first and second Draft. Vast quantity of comments is collected on the field as well as received by mail. Lobbying activities with Serbian parliamentarians were exercised with all the parliamentarian groups, caucuses and parliamentarian committees for Environment and for Legislation. Final Draft of the Law has been produced, approved by the Government and passed to Parliament for adoption. The execution of the Programme has been very successful. The expected goals for the present stage have been fulfilled: Ministry for nivoa programa u određeno vreme, tokom svojih 5 faza: Pripremni proces, Izrada nacrta Zakona, Kampanja za jačanje svesti, Javna rasprava o Zakonu, Lobiranje i izrada završnog predloga Zakona. Kao što se to može videti na vremenskom grafikonu, Vlada Republi- ke Srbije je pripremila prvi nacrt tokom oktobra 2001, angažujući grupu domaćih stručnjaka. U tom trenutku OEBS je obezbedio tehnič- ku podršku kroz angažman 8 stranih eksperata iz oblasti ekološkog prava (iz Velike Britanije, UNEP, UNECE, Irske, Finske, Slovenije i Ita- lije) kako bi izvršili procenu nacrta. Osim toga, obezbeđena je eks- pertska podrška iz Švedske, Svetske banke, Evropske banke za rekon- strukciju i razvoj i Evropske komisije; ukupno 26 međunarodnih struč- njaka je uzelo učešće u procesu izrade Zakona. Početkom decembra 2001. godine Zajednička radna grupa se sastala da prouči komentare i preporuke na nacrt Zakona na osnovu čega je Uprava za zaštitu životne sredine sačinila, 31. decembra 2001, drugi nacrt. Zajedno sa ovim aktivnostima, od prvog decembra iste godine započeta je medijska kampanja na podizanju svesti građana o problemima životne sredine, a sa ciljem njihovog aktivnog uključenja u taj proces, pri čemu su kao prvi strateški koraci ka održivom razvoju ponuđeni inicijativa za novi Zakon i odgovarajuće ministarstvo. Učešće javnosti je započelo 9. januara 2002. godine kroz okrugle stolove i javne tribine u 31 gradu u Srbiji. Oko 3000 osoba direktno je učestvovalo na tribinama. Međutim, ostala javnost, ekspertske gru- pe i institucije umnogome su uvećale ovaj broj. Sve lokalne uprave, njih 160, dobilo je predlog Zakona na komentar uz ohrabrenje da daju svoje mišljenje. Veliki broj poruka, komentara i procena je dos- tavljeno Upravi i radnoj grupi. Gradovima, u kojima su održane tribi- ne, gravitira oko 5.000.000 stanovnika, uključujući vrlo osetljiva pod- ručja, kao što su Bujanovac u južnoj Srbiji i Novi Pazar u Sandžaku. Međunarodni eksperti su dostavili 234 strane svojih komentara i pre- poruka na Zakon. Velika količina komentara sa terena je dostavljena običnom ili elektronskom poštom. Lobiranje u Skupštini Srbije, odnosno detaljno upoznavanje sa Zakonom, urađeno je sa svim skupštinskim grupama i odborničkim klubovima, kao i sa odborima za zaštitu životne sredine i sa zakono- davnim odborom. Finalni nacrt, odnosno vladin predlog Zakona je široko prihvaćen i upućen Skupštini na usvajanje. Primena programa je bila veoma uspešna. Očekivani rezultati su postignuti: Ministarstvo za prirodna bogatsva i prirodne resurse je us- postavljeno 21. maja 2002. godine. Završna verzija predloga Zakona o sistemu zaštite životne sredine usvojena je od strane Vlade i upuće- na Skupštini na usvajanje. Opšti nivo javne svesti je značajno poras- tao, veliki broj pojedinaca, organizacija i institucija je bio uključen u proces izrade Zakona, lokalne uprave su ohrabrene i mobilisane na saradnju sa lokalnim činiocima razvoja što je prvi korak ka ostvari- vanju koncepta dugoročnog, održivog i sveobuhvatnog razvoja gra- đanskog društva uz uključivanje svih zainteresovanih strana i njihovo 22 ANALYSTS ANALITIČARI

ANALYSTS ANALITIČARI 23









28 DONORS DONATORI SDC – SWISS AGENCY FOR DEVELOPMENT AND COOPERATION SDC – ŠVAJCARSKA DIREKCIJA ZA RAZVOJ I SARADNJU GOVERNMENT OF THE GERMAN FEDERAL REPUBLIC VLADA SAVEZNE REPUBLIKE NEMAČKE MINISTRY FOR ENVIRONMENT - REPUBLIC OF ITALY MINISTARSTVO ZAŠTITE ŽIVOTNE SREDINE - REPUBLIKA ITALIJA GOVERNMENT OF THE KINGDOM OF NORWAY VLADA KRALJEVINE NORVEŠKE CONTRIBUTION OF THE GOVERNMENT OF REPUBLIC OF SERBIA DOPRINOS VLADE REPUBLIKE SRBIJE OSCE, MISION TO THE FRY CONTRIBUTION DOPRINOS OEBS-OVE MISIJE U SRJ SIDA - SWEDISH INTERNATIONAL DEVELOPMENT AGENCY SIDA - ŠVEDSKA AGENCIJA ZA MEĐUNARODNI RAZVOJ WORLD BANK SVETSKA BANKA EUROPEAN COMMISSION - DIRECTORATE D, WESTERN BALKANS EVROPSKA KOMISIJA - DIREKCIJA D, ZAPADNI BALKAN EBRD - EUROPEAN BANK FOR RECONSTRUCTION AND DEVELOPMENT EBRD - EVROPSKA BANKA ZA OBNOVU I RAZVOJ ESTIMATED VALUE OF THE PROJECT PROCENJENA VREDNOST PROJEKTA EUR 200,000.00 EUR 100,000.00 EUR 100,000.00 EUR 50,000.00 14 EXPERTS LOGISTIC SUPPORT 1 EXPERT TEAM MEMBER 13 EXPERTS - COMMENTING 1 EXPERT - COMMENTING 3 EXPERTS - COMMENTING ~ EUR 710,000.00 FIRST LAYER PRVI NIVO

JOINT WORKING GROUP Environmental law drafting process with international experts’ involvement was meant to be a real joint work on the task that has been perceived as a joint interest as well. Local experts delivered the First draft, leaning on the local experiences and in accordance to the local needs, endeavoring, at the same time, introduction of the inter- national standards and norms. What OSCE, as an implementing agency, insisted on, was a teamwork. Group of international experts was involved in the commenting process in accordance with interna- tional treaties, agreements, conventions and requirements arising from the experience, but with the consultation role, only. On the Directorate and its experts was whether they will accept the advises or not. We wanted to create atmosphere of collaboration and not compulsion, and we succeded fully. Part of the team work were two joint sessions; the first one on Kopaonik, one of the most beautiful Serbian mountains, in December 2001, and the second in Belgrade, in the OSCE premises, in February 2002. Before and after the very sessions, the intense communication between experts was main- tained, between active members and as well with the advisory part of the group which was composed of 18 international experts worldwide, involved into the drafting process through OSCE. The very sessions were used for fine-tuning of the stands but also for the discussion over the mismatched issues. In both cases, the three days’ work, coupled with the highest level of understanding and efficiency in performing the job, delivered outstand- ing results. At the same time, experts maintained very good contacts and got new experiences and skills, in accordance to their own words. This was the process that all the stakeholders benefits from: Government of the Republic of Serbia got the new Environmental Law and Environmental Ministry, experts fetched additional experience and references and OSCE justi- fication of the right approach to environmental legis- lation and proper concept of experts’, multidiscipli- nary, team work. ZAJEDNIČKA RADNA GRUPA Proces izrade zakona sa među- narodnim ekspertima bio je zamišljen kao zajednički rad na poslu koji je doživljen kao zajednički interes. Domaći stručnjaci su izradili Prvi nacrt zakona, s obzirom na domaća iskustva i domaće potrebe, trudeći se pri tome da uvedu međunarodne norme i standarde. Na čemu je OEBS, kao organi- zacija za primenu programa, insistirao bio je timski rad. Grupa stranih eksperata je bila uključena u proces komentarisanja nacrta u svetlu međunarodnih sporazuma, ugovora, konvencija i iskustvenih zahteva, ali sa prvenstveno savetodavnom ulogom. Na Upravi za zaštitu životne sredine, kao nosiocu posla od strane vlade Republike Srbije i njenim stručnjacima, bilo je da odluči da li će te komentare prihvatiti ili ne. Želeli smo da stvorimo atmosferu sarad- nje a ne prinude u čemu se u potpunosti uspelo. Deo timskog rada bile su i dve zajedničke sesije; prva na Kopaoniku, na jednoj od najlepših srpskih planina, u decembru 2001. godine, a druga u Beogradu, u prostorijama Misije OEBS-a u SRJ, u februaru 2002. godine. Pre samih sesija postojala je intenzivna komunikacija među ekspertima, kako članovima grupe tako i prema konsultativnom delu u koji je, preko OEBS-a, bilo uključeno još 18 stranih stručnjaka iz čitavog sveta. Same sesije su iskorišćene za fino usklađivanje stavo- va, ali i za diskusije o pitanjima o kojima nije postojala saglasnost. U oba slučaja, trodnevni posao je, uz veoma visok stepen razumevanja i konstruktivnosti u radu, doneo izuzetne rezultate. Istovremeno su ostvareni vrlo dobri kontakti između samih eksperata koji su, po sop- stvenim rečima, i sami naučili mnogo, a imali su mogućnost da razmene stručna iskustva. Ovo je bio proces u kojem su svi dobili: Vlada Republike Srbije novi Zakon i Ministarstvo, stručnjaci dodatno iskustvo, a OEBS potvrdu ispravnosti pristupa ekološkoj legislativi i konceptu multidisciplinarnog, timskog, ekspertskog rada. SECOND LAYER DRUGI NIVO 29

List of national experts involved Spisak domaćih eksperata Aleksandar Vesić , Legal Adviser, Directorate for Environmental Protection Anđelka Mihajlov , Director general, Directorate for Environmental Protection, Ministry for Health and Environmental Protection, Republic of Serbia Anka Gopić , Legal Adviser, Directorate for Environmental Protection Branislav Božović , Secretary for Environment, City of Belgrade Bratislav Krstić , Legal Adviser, Directorate for Environmental Protection Dragoljub Bijelović , Legal Adviser, Directorate for Environmental Protection Dragoljub Todić , Legal Expert Gordana Petković , Federal Secretariat for Labor, Health and Social Care Marina Ilić , Environmental Protection Administration, Ministry of Health and Environmental Protection, Republic of Serbia Mihajlo Gavrić , Deputy Director of Hydrology, Republican Hydrometeorological Institute Milica Durać , Legal Adviser, Directorate for Environmental Protection Mirjana Gucić , Legal Adviser, Directorate for Environmental Protection Predrag Simonović , Expert in Biology Svetlana Nojković , Legal Adviser, Directorate for Environmental Protection Sreten Đorđević , Legal Advisor, Ecological Association “Gradac”, Valjevo Vid Vukasović , Legal Expert, Institute of International Politics and Economics List of international experts involved Spisak međunarodnih eksperata Branko Bošnjaković , EST Consultancy, Environmentally Sustainable Transition Čedo Maksimović , Professor, Imperial Colledge, Department of Civil and Environmental Engineering, UK Giuseppe Marfoli , seconded by Italian Ministry for Environment Harald Egerer , UNEP Consultant, International Environmental Law Jernej Stritih , OIKOS, Director, Slovenia Jonas Ebbesson , Stokholm University Mikko Punkari , International Legal Adviser, Helsinki Consulting Group Owen McIntyre , International Legal Adviser, Helsinki Consulting Group Zen Makuch , International Legal Adviser, Imperial Colledge, UK Alke Schmidt , Principal Environmental Specialist, Environment Department EBRD Arcadie Capcelea , Lead Specialist, Environmentally and Socially Sustainable Development, Europe and Central Asia Region, The World Bank Rada Olbina, EBRD Reinhard PRIEBE, EC DIRECTORATE D, Western Balkans, the Director Robert Coyle, Senior Environmental Adviser EBRD Legislative Assistance and Research Program ABA /Central and Eastern European Law Initiative (CEELI) 740 15th Street, NW Washington, DC 20005-1022 Axel Gosseries Barry S. Neuman , Esq. C. Anthony Cleveland Clifton J. McFarland Denise Ferguson-Southard , Gen. Counsel, Maryland Department of the Environment Eric Ames , J.D., M.P.H., Alcalde, New Mexico 87511 Eric W. Sievers , Ph.D. James N. Christman , Esq. Kerry E. Rodgers Professor Philip Weinberg , St. John’s University School of Law Segundo J. Fernandez , Oertel, Hoffman, Fernandez & Cole, P.A. Thomas Benke, on behalf of The Environmental Compliance Organization LLC. Nikolay Nikolov, on behalf of The Environmental Compliance Organization LLC. 30 SECOND LAYER DRUGI NIVO

MEDIA CAMPAIGN POLLUTION REQUIRES SOLUTION (Third layer) Most of the people do not understand the problem of overall pol- lution in the manner that would enable implementation of appropri- ate solution. Environment is considered mostly on the immediate and visible level, where the ultimate effects of the complex neglect could be seen. Sole activities are frequently concentrated on the conse- quences only, losing sight of the very cause. Every single individual and society as a whole, suffers from the repercussions of the pollu- tion and this is why this issue needs to be resolved with joint effort of all the stakeholders, citizens in particularly. However, to perform this, it is necessary to set up procedures so that everyone could partici- pate in the process. The very start are, certainly, legislation and insti- tutions. Public must take its part in the legislation process by which we can obtain wide support to the end product – Law and the Ministry - the tools for the implementation of the proce- dures for sustainable development with strong care for environment. In aim to mobilize public for having active role, OSCE created media campaign for raising overall awareness on the issue and to prepare public for the consul- tation process. Campaign was tailored to address the target groups in a shocking way, pre- senting anxious pictures of polluted water, air and food. However, at the same time, the first steps to solution were offered: New Law and a New Ministry, with demanding message attached – Pollution Requires Solution - indicating dynamic and resolute approach. Media campaign lasted for two months and was performed through 101 billboards all over the country, by regular advertising in 5 dailies and 8 weekly magazines, through 6 major (national), TV and radio stations and 50 local TV and radio stations with appropriate radio and TV clips. Independent comment on the Draft has been made and distributed twice, through dailies, in 200,000 items. Stickers (10,000), badges (10,000) and the Draft (10,000) were dis- bursed on the field in the places where the panel discussions were held. We produced 500,000 picture postcards out of which about 400,000 were distributed through 5 dailies while rest was disbursed on the field. Picture post-cards had prepaid post what enabled their immediate use. In all of 31 places, where round tables of the public consultation process took place, local NGOs organized events, exhi- bitions, performances, concerts… In addition to that, in each of those areas, local media took their part in mobilizing public through inter- views, reportages, and special editions. Media campaign was considered as very successful and with high level of efficiency. MEDIJSKA KAMPANJA ZAGAĐENJE ZAHTEVA REŠENJE (Treći nivo) Najveći broj ljudi ne shvata problem sveukupnog zagađenja na način koji će omogućiti primenu pravih rešenja. Životna sredina se posmatra tek na najužem, vidljivom okruženju na kome se, istini za volju, najviše primećuju efekti zanemarivanja. Pojedinačne aktivnosti se često koncentrišu na ublažavanje posledica, gubeći pri tome iz vida same uzroke zagađenja. Svaki pojedinac, ali i društvo u celini, trpi posledice zagađenja i to je razlog zašto je neophodno da se pro- blem reši zajedničkim snagama svih učesnika, posebno građana. Međutim, da bi se to ostvarilo, neophodno je uspostaviti mehanizme koji će omogućiti svakome da učestvuje u procesu. Sam početak su, svakako, zakonodavstvo i izgradnja institucija. Javnost mora uzeti učešće u procesu izrade nacrta zakona čime se obezbeđuje visok nivo usaglašenosti. Zakon i Ministarstvo za zaštitu životne sredine su alatke za primenu procedura održivog razvoja sa jakim akcentom na zaštitu životnog okruženja. U cilju mobilisanja javnosti, OEBS je osmislio medijsku kampanju za jačanje opšte svesti o postojanju ekoloških problema, kao i za pripremu učestvovanja na javnim tribinama u procesu procene Zakona. Kampanja je pripremljena tako da šokira, predstavljajući zabrinjavajuće slike zagađene vode, vazduha i hrane. Međutim, istovremeno su ponuđeni prvi koraci ka mogućem rešenju: novi Zakon i novo Ministarstvo uz jaku poruku - Zagađenje zahteva rešenje – koja je ukazivala na dinamičan i odlučan pristup. Medijska kam- panja je trajala dva meseca i izvedena je na 101 panou širom Srbije, redovnim oglašavanjem u 5 dnevnih i 8 nedeljnih novina i časopisa, kroz 6 glavnih (nacionalnih) i 50 lokalnih TV i radio stanica uz pomoć odgovarajućih TV i radio spotova. Nezavisan komentar Zakona je dis- tribuiran u dva navrata kroz dnevnu štampu u tiražu od 200.000 primeraka. Nalepnice (10.000), bedževi (10.000) i komentari na nacrt (10.000) distribuirani su na terenu, u mestima gde su se održavale javne tribine. Štampali smo 500.000 razglednica sa 8 motiva, od kojih je 400.000 besplatno distribuirano kroz dnevnu štampu, a ostatak u akcijama na terenu. Razglednice su imale plaćenu poštarinu tako da je bila omogućena njihova trenutna upotreba. U svakom od 31 mesta, gde su se okrugli stolovi javne rasprave održavali, lokalne NVO su organizovale razne sadržaje – priredbe, izložbe, predstave, koncerte… Uz to, u svakom od pomenu- tih mesta, lokalni mediji su imali ulogu dodatnog mobilisanja javnos- ti kroz intervjue, reportaže i specijalne emisije. Medijska kampanja je procenjena kao veoma uspešna i sa visokim stepenom efikasnosti. THIRD LAYER TRE∆I NIVO CAMPAIGN KAMPANJA 31





















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