sou · GLB3151 · 1998-01-01 00:00:00 — The of livestock has been concentrated to certain regions with a high density of livestock, which has meant that manure has become a problem rather than a resource. This leads to major Agriculture and the environment 79 leakage of plant nutrition, with negative consequences for plants and animals in water courses, lakes and seas. Excessive growth of certain types of plants has lead to increased dependence on chemical pesticides, and this in turn has resulted in harmful effects on biodiversity and an accumulation of chemical substances in soil and water. Concentration has also led to a loss of agricultures genetic resources in the form of local types and species. This loss of genetic resources poses a threat to agricultures long term production base. Mechanisation and intensive farming have led to the use of larger and heavier agricultural . The consequent heavy pressure on the soil can affect its physical quality, with effects such as reduced water infiltration capacity and consequential reduction in gas exchange. Soil erosion caused by over grazing is a serious problem in several Member States. Local high livestock density has led to soil erosion. 6.2.3 Market considerations of environmental effects An increasing number of consumers today take environmental issues into consideration in their choice of food, thereby assisting changes towards more environmentally friendly food production. However, we do not believe that the market, through consumer demands for environmentally friendly food, will completely manage to eliminate the environmental problems of agriculture. Neither can societys wishes for beneficial environmental effects due to agriculture in the form of for instance variation and a great variety in nature and cultural values be fulfilled through consumers choice of food. In order to promote the beneficial environmental effects of agriculture and to reduce the environmental load of agriculture, measures of control must be put into place by society. 6.2.4 EU environmental policy with regard to agriculture There are no formally expressed environmental objectives in the CAP. On the other hand, agriculture, along with all other sectors, comes under the EUs general environmental objectives as mentioned in section 3.3. Despite this lack of environmental objectives within the CAP, Union has introduced certain environmental measures during 80 Agriculture and the environment The common rules for environmental payments are only a framework, and each subsequently works out national environmental payments which are financed jointly by Union and the individual country concerned, subject to approval by Commission. The three countries which have recently joined Union - , and , have, in comparison to other Member States, a large proportion of environmental assistance. However, in overall terms environmental assistance only comprises a small part of total agricultural support. For the environment in general in Union it has been agreed that the PPP (polluter pays principle) shall be applied. It is reasonable to expect a polluter to pay for measures intended to combat that pollution. This principle is complicated by issues of ownership. Views of ownership differ within Union, affecting the application of the PPP. Despite these differences, the principle that the agricultural sector has its own responsibility for its own environmental effects is central to ongoing discussions on instruments and funding in environmental issues. 6.3 Instruments for a sound environment With regard to the instruments which society has at its disposal for stimulating beneficial environmental effects such as natural diversity and cultural values, and for minimizing the environmental load, measures can be divided as follows: PPP legislation can be used to prohibit certain production methods, to determine what products can be used, and for rules relating to care, etc. Economic instruments of control in the form of charges or environmental taxes can be applied. In and there are environmental charges on pesticides. also has charges on commercial fertilizers, whereas the applies charges to manure. In other areas there are some forms of environmentally related taxes in most Member States, e.g. for disposable materials, or charges for waste or energy consumption. To the extent that environmental problems are shared by all, there are grounds for a unified approach. Economic instuments of control, based on current models for environmental assistance to farmers, can continue to be used in future. Agriculture and the environment 81 Efforts in to promote information, advice and training, have shown beneficial results. We have decided that it is unnecessary in this context to discuss how various environmental problems or the conservation of beneficial environmental values can be solved. This is partly due to the fact that problems vary in different parts of Union, and also to the fact that there are alternative ways of dealing with environmental problems. However, our basic opinion is that environmental issues must be given higher priority in the CAP than is currently the case. In a future society sustainable agriculture will play an important role. It is reasonable to expect society to remunerate agriculture for the beneficial effects society wishes to see, and for the services and measures it is obliged to provide over and above the provisions of the PPP. 6.4 Where should decisions be made? The situation with regard to the environment within Union varies greatly between different Member States and different regions. A decisive factor as to what measures should be taken and who should make decisions must be the consequences which the beneficial environmental services or negative effects will have in the various regions. Certain environmental problems only affect a small region inside a country, in which case it is obvious that a common policy is not necessary in finding the solution to those problems. Other problems cross borders and do require common solutions. The collective benefits which are desirable also vary between different regions. The aim must be to strive for generally held, high level environmental objectives and to bring them into force throughout the Union as a whole. In our opinion it is important that basic norms for how production is carried out should be established for the entire Union, taking competition between the countries into account. PPP shall apply to these basic norms, i.e. every farmer in Union is responsible for ensuring that rules are adhered to. Harmonised legislation which defines minimum requirements regarding production should exist throughout Union. Even though there are major differences in natural conditions and in issues of environmental problems and national preferences, there should be a high level of ambition in the harmonisation of legislation. With regard to how basic conditions should 82 Agriculture and the environment be formulated, demands that agricultural production should not cause fertilizer leakage above a certain level, that only certain pesticides may be used and only at certain levels, and that remains of these may not be allowed to find their way into food, could for instance be addressed. In the case of fertilizer leakage, common objectives in confomity with the current directive on nitrates should be formulated, but the exact rules as to how the objectives should be met should be allowed to vary under common supervision. Another level, in addition to the common basic norms, could be the possibility to introduce rules over and above the reference norms at national level for the whole country of parts of it. In this way national and local differences can be accommodated. Such a regulation should be voluntary and decided on in respective Member States. However, one requirement should be that the PPP must also apply. has already made substantial reductions in the number of pesticides which are approved for use. A harmonisation of regulations might possibly lead to that substances which were previously deemed unfit for approval becoming accepted again. This situation could be avoided if stricter national requirements were permitted. A third level, over and above common and national legislation, could be payments to farmers for collective benefits and other measures which go beyond the regulation of the harmful effects on environment. Examples of this could be measures to promote and maintain biodiversity, preserve cultural values or to promote a varied farming landscape. As such it would be reasonable for agriculture to be rewarded for fulfilling the extra requirements and wishes of society in questions of agriculture and the environment. However, we consider that payments should only be made for measures which go beyond the PPP. In this way one would avoid farmers in one country receiving payments for measures which farmers in other countries, in accordance with the PPP, have to pay for themselves, A country which takes the initiative in environmental issues should not be punished for so doing. The proportion of farming land in relation to the total land area in the EU15 is around . , at , is one of the countries with the lowest proportion of farming land (European Commission 1996)). Needs for and costs of a varied landscape and preserved cultural environments differ. The benefits or pleasure which a landscape can give are primarily local and are also very hard to measure. This would indicate that such matters should be dealt with nationally. Agriculture and the environment 83 of beneficial environmental effects, such as preservation of biological diversity and genetic resources are clearly of common interest. Even if environmental problems vary between Member States, which in many cases would appear to favour de-centralised solutions, there is a clear link between Member States through the effects on competition of various environmental measures. It may be tempting to use low environmental demands as a means of subsidising production. If production can be switched between countries, this can have major effects on competition. Low environmental demands cannot, on the other hand, be tolerated as a tool of competition. However, in general one cannot expect the same level of various environmental measures in different countries. Different types of countryside are affected differently by the same pollution, and the costs of remedying or removing that pollution vary. We consider it necessary to co-ordinate measures of environmental policy within the Union. The risks for improper subsidies are otherwise too high. Support for environmentally friendly production or low environmental demands can easily become a disguised way to subsidise food production or a hidden form of income support. The Commission must therefore take an important supervisory role in this respect. In a deregulated market the question of competition on equal terms will be of far greater importance than today, when production is controlled by administrative decisions which include the imposition of production quotas. It is important that sufficient powers are given to punish those who abuse the system. We would also like to stress the importance of information and education inside the Union, something which in has produced beneficial results. On the basis of its size Union can promote environmental issues of global interest internationally in a way which individual countries could never manage. This can only take place under the precondition of a common attitude and a common policy. 6.5 Who finances environmental payments? In the preceding section we discussed where decisions relating to various environmental measures should be taken. When it comes to minimising the negative effects of agriculture on the environment, the principle of PPP should apply. It is the producer, not society, who should pay for any negative effects. 84 Agriculture and the environment On the other hand it is reasonable to expect society to pay agriculture for the beneficial environmental effects society would like, such as biodiversity and varied farming landscapes. Many of these environmental services must first and foremost be seen as local and regional, but there are exceptions. With regard to the competition aspects of support of this kind mentioned earlier, we propose that financing these measures should be split between Union and respective as it is today. Partial joint-financing provides better opportunities for supervision and sanctions. 7 Agriculture and the animals 7.1Objective - strict requirements for animal welfare Animal welfare legislation in requires animals to be looked after in an ethically satisfactory way. Animals must not only be protected from suffering, but also from disease. Animals must be kept and looked after in a satisfactory environment and in such a way as to promote their health and allow them to behave naturally. This also applies to transportation and breeding. Animals must also be protected from discomfort and suffering relating to slaughter. There is a generally held belief in that we should take care of our animals in the best possible way. Apart from the fact that animal husbandry plays an important part in developments towards a sustainable and environmentally friendly production, animal products are a significant part of our food. How the animals are looked after and treated affects the safety and quality of food. Furthermore, we are interested in how they are looked after purely out of interest for the animals themselves. This applies to breeding, transportation, raising and maintenance of animals and to minimising risks for the spread of animal diseases and the use of antibiotics and hormones. In addition to environmental aspects, there are both quality and ethical aspects to bear in mind when determining regulations for animal care and animal welfare. As mentioned above it is important that animal husbandry is carried out in environmentally friendly ways, acceptable in terms of animal welfare. In order to achieve sustainable production it is vital that animal husbandry is carried out in such a way as to promote and conserve biological diversity and genetic resources, to promote the conservation of valuable and natural environments and to minimize the environmental load. In order to achieve sustainable production, the rearing of animals in combination with cultivation of plants and use of land is, in general, something to be preferred. The objectives for animal husbandry in the future discussed above are based on the values which exist in . In many parts of Union there are similar attitudes, even if it should be pointed out that there are value differences between different countries and 86 Agriculture and the animals between different groups of citizens inside Union. We consider it important that the situation of animals inside Union should be improved. We thus consider that the objectives of Swedish animal welfare legislation presented by way of introduction should be adopted within Union in the course of time. The Swedish regulations relating to animal welfare may, from an international perspective, be seen as relatively far-reaching. The majority of EU directives relating to animal welfare are minimum directives, and there is nothing to prevent an individual from imposing stricter national regulations. In most areas Union lacks common animal welfare legislation, and there is no national animal welfare legislation in several Member States. There are, however, common directives relating to animal welfare on questions of transportation of living animals, protection of animals in aspects of slaughter, and care and rearing of calves, pigs and laying hens. With the exception of rules regarding transport of living animals, these animal welfare directives are minimum directives, i.e. Member States may apply more stringent regulations for areas including the maintaining and rearing of animals. As regards animal transport, it is not possible, on the grounds of animal welfare, to prevent an animal consignment from taking place inside Union if the directive rules for animal transport have been applied. In the Act of Accession, has been granted the right to maintain certain more stringent rules. Legislation on protection against animal diseases is on a Union level, i.e. it applies in all Member States. Certain exceptions may be granted depending on the infection situation inside a country. At the time of EU membership, was granted exceptions for certain animal diseases, including controls for salmonella. In questions of animal feeds there is a series of common rules from which has been made exempt, including the right to maintain a ban on the use of antibiotics and animal carcass meal in feeds. Within Union the use of growth inducing hormones is forbidden. Agriculture and the animals 87 7.2.2 Animal issues of special importance Swedish legislation for animal welfare has contributed to the fact that animals in are generally more healthy than in the majority of Member States. Other reasons for this are the climate, our geographically isolated position and the lower density of animal population. It is important for the well-being of animals and for the quality and safety of our food to work towards improved animal welfare and animal welfare throughout Union. Increases in animal trade and transportation can lead to increased risks for the spread of infection. As such it is important that animal husbandry is seen as one part of a broader context. There are, however, aspects of the CAP today which work against animal-and environmentally friendly production. Current examples are the export refunds and slaughter subsidies which encourage animal transportation across long distances. A limitation of these transports within Union should be given high priority, since it would provide advantages both from the point of view of the animals well-being and from the reduced risk of the spread of infection. Limitations on animal transport would also cut down on the environmental load. With regard both to animal well-being and to food quality it is vital to limit the spread of animal disease and to have the opportunity to check up on animals throughout Union. Better animal husbandry also leads to more profitable production. Two examples are the spread of swine fever and BSE which have caused major problems in Union. Where animal diseases are concerned, Union must have a high level of ambition. In general, a precaution principle should apply. The basic principle must be to prevent animal diseases from being passed on to human beings. Salmonella and campylobacter are examples of diseases which affect the quality of food and run the risk of being passed on to humans. From the point of view of spread of infection, is better placed than most other countries in the Union, owing to its ambitious programmes. The objective should be that an equivalent situation should be achieved throughout the Union, paying special attention to preventing the spread of salmonella. The uses of antibiotics and meal from animal carcasses in feeds are also important issues for . High use of antibiotics in Union has led to high resistance levels to antibiotics in the fight against salmonella. As such, it is vital, both from the point of view 88 Agriculture and the animals of animal health and bearing in mind that for instance salmonella can be passed on to humans, that the use of antibiotics should be restricted. As an additive in feeds it should be banned, just as the use of animal carcass meal should also be banned. For the animals well-being, but also with regard to the preservation of biodiversity and genetic resources, there are reasons to legislate on the breeding, maintenance, rearing and slaughter of animals. Freedom from genetic defects is an important issue from a breeding point of view. 7.3 Instruments for improved animal husbandry It is important that the situation for animals in Union should be improved for ethical, environmental and quality reasons. For this to take place the EUs common regulations which exist for infection protection, animal welfare and animal health must be tightened. This applies for instance to animal transport, certain rearing methods, feed quality, hygiene and the spread of infection. In the field of animal welfare, where common regulations are often lacking, it is especially important that measures are introduced. Swedish law on animal welfare should be the starting point. In addition, measures must be taken to preserve and promote biodiversity and genetic resources. In order to improve animal welfare and animal health inside Union a major co-ordination of other rules and measures of support within the CAP is necessary. There are currently examples of support and rules which promote intensive, non animal-friendly production. As such it is important to analyse the indirect effects of various kinds of support. Support which work against production with stringent animal welfare demands, e.g. support which stimulates long transportation of living animals, must be removed. In areas such as infection protection where Union rules currently exist it is particularly important to encourage a development towards more stringent requirements at EU level. It would be reasonable both for the time limited and unlimited exemptions which was granted at the time of EU entry to apply to the whole of Union. These include measure for salmonella control and the right to ban the use of antibiotics and animal carcass meal in animal feeds. In so far as no improvements are achieved at EU level, individual countries should be given the opportunity to go further. Agriculture and the animals 89 In order to achieve production linked to stringent requirements for animal welfare, advice and information to both producers and consumers are instruments which should be used to a greater extent. It is also important that producers inform consumers about the production methods they have used. Instruments to help achieve environmentally friendly animal production have been discussed in chapter 6. 7.4Who should decide and who should provide the finance? Most of the instruments discussed in the preceding section relate to legislation involving more stringent provisions without economic elements. It is vital that improvements take place at EU level as soon as possible. This is particularly important in areas where common legislation prevents individual countries from introducing the rules they wish. Although the basic principle is that animal welfare regulations must be improved at EU level it is reasonable that those countries which want to introduce more stringent animal welfare provisions should be given the opportunity to do so. When introducing more stringent national requirements the principles that trade should not be prevented by arbitrary discrimination and that the lives of humans or animals should not be put at risk (articles 30 and 36 of the ) must be taken into consideration. In matters of protection against infection, for which Union rules currently apply, the opportunity to apply more stringent requirements at national level should also be granted. The main part of regulations for animal production comprises legislation, whereas financial means of control should chiefly be confined to support for animals which contributes towards fulfilling various environmental objectives such as biodiversity and a varied farming landscape. Where decisions should be taken and who should finance these has been discussed in chapter 6. Agriculture and regional development 91 8 Agriculture and regional development 8.1Objectives - regional balance and viable rural areas A major part of the EU population lives in rural areas and in certain parts of the Union agriculture plays a significant role in the local economy.