Transposition of Natura 2000 Directives Into Forestry of Croatia

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Transposition of Natura 2000 Directives Into Forestry of Croatia Transposition of Natura 2000 Directives into Forestry of Croatia -Multiple perspectives on policy formulation – Thesis submitted in partial fulfillment of the requirements of the degree Philosophiae doctor of the Faculty of Environment and Natural Resources, Albert-Ludwigs-University Freiburg, Germany by Marko Lovrić Freiburg im Breisgau, Germany 2014 Dean: Prof. Dr. Barbara Koch Supervisor: Prof. Dr. Ulrich Schraml, Albert-Ludwigs University of Freiburg Second supervisor: Prof. Dr. Margaret Shannon, Honorary Professor at Albert-Ludwigs University of Freiburg Readers: Prof. Dr. Ulrich Schraml, Albert-Ludwigs University of Freiburg Prof. Dr. Tom A. B. Snijders, University of Oxford, University of Groningen Graduate School Environment, Society and Global Change Research area: Environmental Governance Faculty of Environment and Natural Resources, Chair of Forest and Environmental Policy Date of defense: 16.6.2014 FOREWORDS Acknowledgements First and foremost, I would like to express my sincere gratitude to my supervisors, Prof. Dr. Ulrich Schraml and Prof. Dr. Margaret Shannon, for their tireless enthusiasm, invaluable support, and for their significant contribution to this work. I am deeply indebted to Prof. Dr. Tom A. B. Snijders and to Dr. Christian Steglich for providing encouragement and guidance, as without their assistance, this thesis would lack the state it is currently in. I am very grateful to my colleagues from the Chair of Forest and Environmental Policy Faculty of Environment and Natural Resources, University of Freiburg, as through frequent discussions they have contributed to the methodological setting of the thesis. I would like to extend a special thanks to Ms. Sabine Dehn who has helped me on numerous occasions. I would not have had the opportunity to be a PHD candidate at the Faculty of Environment and Natural Resources, at University of Freiburg without the FOPER I and FOPER II projects. To a large extent, my scientific capacities originate from the participation in these projects. As such, I would like to use this opportunity and thank the managers and teaching staff of the FOPER projects for providing me with the necessary knowledge and skills required for a PhD. I would also like to thank Prof. Dr. Ivan Martinić for introducing me to the topic of Natura 2000 and shaping the initial setting of the research. Prof. Dr. Martinić’s practical guidance on conducting research in Croatia has made it possible. The cornerstone of this thesis is the analysis of the Expert working group on forestry. I would like to kindly thank all of its members for providing me access to the meetings, and for diligently filling in all the questionnaires and providing answers to my numerous questions. The opportunity to closely follow a policy formulation process is what makes this research unique. I would also like to extend my gratitude to Dr. Bernhard Wolfslehner and Dr. Dijana Vuletić for finding a mode of work which enabled me to combine my obligations at the EFICEEC-EFISEE (Central-East and South-East European) Regional Office of the European Forest Institute with the tasks of a PhD candidate. Last but not least, special thanks goes to Nataša Lovrić, who has assisted me in every way possible – in the methodological preparations of the thesis, in data collection and analysis, in reviewing the text, and most importantly as an emotional support throughout the years. I Zusammenfassung Natura 2000 gilt als ökologisches Netzwerk der Europäischen Union und somit das größte Schutzgebietsnetzwerk der Welt. Es gründet auf der Flora-Fauna-Habitat-Richtlinie, die jedes EU-Mitglied in seine nationale Gesetzgebung implementieren muss. Eine EU-Richtlinie ist ein Gesetzgebungsakt, welcher auf ein Ergebnis abzielt, aber die Maßnahmen um dieses zu erreichen, nicht im Einzelnen spezifiziert. Jedes EU-Mitglied kann die Maßnahmen zur Erreichung des Ziels selbst bestimmen. Die nationale Umsetzung von Natura 2000 unterscheidet sich innerhalb der EU sowohl was den Anteil der Schutzgebiete als auch den Grad des Schutzes angeht. Kroatien, als 28stes EU Mitglied, unterwirft sich aktuell diesem Prozess und die Regierung bereitet bereits seit einigen Jahren die rechtlichen Grundlagen für die Umsetzung von Natura 2000 vor. Die nationale Implementierung von Natura 2000 ist ein Politikgestaltungsprozess in dem die Machtverteilung unter den Akteuren eine wichtige Rolle spielt. Dies wirft folgende Forschungsfrage auf: Wie beeinflussen die politischen Akteure das forstpolitische Entscheidungsverhalten in Kroatien? Zur Beantwortung dieser Frage beginnt die Untersuchung mit einem Überblick über Natura 2000 im Allgemeinen, die Formulierung der Richtline und nachfolgende Umsetzung in Europa, um dann einen Blick auf die Umsetzung in Kroatien zu werfen. Anschließend richtet sich der Fokus auf die Expertenarbeitsgruppe, welche den forstlichen Teil der Natura 2000 Bestimmungen in Kroatien verfasst hat. Die Untersuchung betrachtet außerdem den Diskurs innerhalb der Arbeitsgruppe und analysiert wie verschiedene Grundüberzeugungen der Akteure die Entscheidungen geformt haben. Die letzten Kapitel widmen sich der Analyse des betreffenden Netzwerkes, namentlich der Einflussnahme während des Formulierungsprozesses aufgrund persönlicher Beziehungen sowie aufgrund von Machtverhältnissen innerhalb von Organisationen und deren Bedeutung für Meinungsänderung der Arbeitsgruppenmitglieder und damit für ihre Entscheidungen. Kapitel II liefert zur Analyse der Expertengruppe Forst eine Beschreibung von deren Umfeld und deckt die Formulierung der Natura 2000 Richtlinie ab, beschreibt ihre nationale Implementierung und gibt einen historischen Überblick über die Entwicklung in Kroatien. Dieses Kapitel ist aus der Perspektive der “Europeanization of Environmental Governance“ (Börzel, 2009) geschrieben. Diese besagt, dass Nationalregierungen ihre Institutionen so gestalten oder anpassen müssen, dass sie in der Lage sind EU-Gesetzgebung umzusetzen. Die Analyse stützt sich auf eine Literaturanalyse und auf 57 Interviews mit Experten. Die Ergebnisse weisen darauf hin, dass beide Verordnungen in enger Kooperation mit Umwelt-NGOs auf der einen Seite und gegen den Widerstand durch die Vertreter der Landnutzer auf der anderen Seite vorbereitet wurden. II Die erste Phase der nationalen Umsetzung der Richtlinie war europaweit stark durch einen Top- Down-Ansatz geprägt und wurde später jedoch durch einen Mehrebenen-Governance-Ansatz abgelöst. Westliche EU-Mitgliederstaaten haben im Rahmen des Natura 2000 Netzwerks relativ kleine Schutzgebiete ausgewiesen, aber dafür die Umsetzung hartnäckiger eingefordert, während die östlichen EU-Mitgliedstaaten große Flächen unter Schutz gestellt haben, in denen die Verpflichtungen, die sich aus Natura 2000 ergaben, nicht so strikt eingehalten wurden. Kroatien hat sich über 10 Jahre, in denen eine ganze Reihe fremdfinanzierter Projekte durchgeführt wurden, auf die Umsetzung von Natura 2000 vorbereitet. Durch diese Projekte wurde die Leistungsfähigkeit der staatlichen Verwaltung gesteigert und angemessenes Fachwissen für die Umsetzung von Natura 2000 generiert. Diese internationalen Projekte haben außerdem die Bildung eines nationalen ökologischen Netzwerkes, einem Vorläufer des Natura 2000 Netzwerkes, gefördert. Obwohl diverse Versuche zur öffentlichen Anhörung und zum Informationsaustausch gemacht wurden, waren die Landnutzer nicht umfassend an der Implementation des Netzwerkes beteiligt. Nicht-Regierungsorganisationen aus den Bereichen Umwelt- und Naturschutz wurden auch nicht sehr stark einbezogen und entwarfen dann eine eigene Karte auf der sie Vorschläge für Natura 2000 Flächen ausweisen (Schattenlisten). Der Forstsektor war stärker als andere in die Vorbereitung einbezogen, trotzdem sind noch nicht alle Konflikte ausgeräumt. Schaut man sich die Beispiele anderer Länder an, so ist zu erwarten, dass der große Enthusiasmus über die Implementation von Natura 2000 vor dem Beitritt in der Phase danach nicht aufrecht erhalten werden kann, da mit Eintritt der Einfluss der EU nachlassen wird und die zentralen nationalen Verwaltungen nicht in der Lage sein werden, dem Druck der Landeigentümergruppen standzuhalten. Kapitel III konzentriert sich auf die Aktivitäten der Arbeitsgruppe und analysiert wie verschiedene Diskurse deren Entscheidungen geprägt haben. Das Kapitel nutzt drei theoretische Ansätze, deren Eignung, die Entscheidungen der Arbeitsgruppe zu erklären, durch den Testn von 28 Hypothesen überprüft wird. Die theoretischen Ansätze gründen auf dem „Advocacy Coalition Framework (Jenkins-Smith and Sabatier, 1994), der “Rational choice theory (Coleman, 1990) und der „Theory of Communicative Action“ (Habermas, 1979). Die Daten aus den Interviews mit Mitgliedern der Arbeitsgruppe und aus der nicht-teilnehmenden Beobachtung ihrer Treffen wurden mittels Inhaltsanalyse ausgewertet. Die Ergebnisse zeigen, dass die Mitglieder der Arbeitsgruppe ihre Meinungen der vorherrschenden Haltung ihres Sektors angepasst haben. Staatliche Verwaltungsorganisationen dienen als Bindeglied zwischen Forstwirtschaft und Naturschutz. Mitglieder des Forstsektors haben ihre ursprünglichen Positionen zur Rolle von Natura 2000 in der Forstwirtschaft nicht verändert, eine Meinungsänderung war eher für zweitrangige Themen nachweisbar. Dies ist sowohl mit dem normativen als auch dem rationalen Ansatz erklärbar. Die Ergebnisse deuten auch auf die Existenz eines sog. „Devil-Shift“ hin, ein Phänomen bei dem Akteure ihre Widersacher als einflussreicher beschreiben als sie tatsächlich sind. Die
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