COMMISSION OF THE EUROPEAN COMMUNITIES
Brussels, 01.06.2004
COM2004 394 final
COMMISSION WORKING DOCUMENT
Integrating environmental considerations into other policy areas- a stocktaking of the
Cardiff process
EN
EN
1. INTRODUCTION
This stocktaking of environmental integration follows from the 2003 Spring European
Council, which noted the Commissions intention to carry out an annual stocktaking of the
Cardiff process of environmental integration process and a regular environment policy
review and to report in time for the outcomes of these exercises to be taken into account in the
preparation of its future Spring reports, starting in 2004 .1 The stocktaking complements the
2003 Environment Policy Review 2 EPR adopted in December 2003, and should be read in
the context of the information presented in the 2003 EPR. The principle of environmental integration recognises that environmental policy alone cannot
achieve the environmental improvements needed as part of sustainable development. The
changes required to reduce environmental pressures of high concern from fisheries,
agriculture, transport, energy and other areas so as to achieve sustainable development, can
only be achieved through a process of environmental integration in these sectors.3
At EU level the importance of environmental integration is recognised in Article 6 of the EC
Treaty, which stipulates that environmental protection requirements must be integrated into
the definition and implementation of the Community policies in particular with a view to
promoting sustainable development.4 Environmental integration was given an institutional
impetus in 1998 with the launch by the European Council of the so-called Cardiff process
requesting different Council formations to develop strategies to this effect. The EU Sustainable Development Strategy EU SDS, adopted in Gothenburg in 2001, went a
step further, requiring the pursuit of both priority environmental goals and environmental
integration alongside economic and social objectives. The Strategy provides a long-term
vision that involves combining a dynamic economy with social cohesion and high
environmental standards. This requires a renewed emphasis on policy coherence and
integration, as emphasised in the 2001 European Council conclusions adopting the EUs
Sustainable Development Strategy, which invited the Council to finalise and further develop
sector strategies for integrating environment into all relevant Community policy areas with a
view to implementing them as soon as possible, and in doing this that Relevant objectives
set out in the forthcoming sixth environment action programme and the sustainable
development strategy should be taken into account. At the EU level, the more holistic, long-term approach of the sectoral environmental
integration strategies is complemented by the extended impact assessment tool designed for
use when proposing individual policy measures or initiatives5. Both of these are instruments
that are key to striking the right balance between the three pillars of sustainable development,
and thus to achieving a higher level of environmental integration. 1
2
3
4
5
Paragraph 58, Presidency Conclusions, Brussels European Council, 20-21 March 2003. COM2003745, 3 December 2003. See box below.
The importance of integration was reaffirmed in the draft constitutional treaty proposed by the
Convention on the Future of Europe on 18 July 2003 articles II-37 and III-4. see
httpeuropean-convention.eu.intDraftTreaty.asp?langEN
Environmental Impact Assessment EIA and Strategic Environmental Assessment SEA are other
tools to promote environmental integration at national or regional level for projects and plans and
programmes. EN
2
EN
The processes set in place over the past few years have led to environmental improvements in
several sectors. However, the pace of progress towards further environmental integration
would be boosted if all sectors implemented commitments made over the past five years. This
will be a difficult process as many of the low hanging fruits of integration have already
been picked, future efforts to reverse persisting unsustainable trends will need to focus
increasingly on structural reforms, which may generate tensions with established interest
groups in the sectors concerned. In addition, action at national level is needed to deliver on
the commitments made at the Union level, as in many areas Community competence is
limited. The stocktaking first sets out the framework for environmental integration at EU level since
the launch of the Cardiff process in 1998. It then presents a synthesised review of the status of
environmental integration in the sectors, which have been requested to develop integration
strategies. It finally draws conclusions as to how to take environmental integration forward at
EU level. These highlight priority actions to push forward with the implementation of the
Cardiff process, and to support it with complementary actions at national and community
levels, notably by adapting and building on existing environmental policy approaches and
seeking win-win solutions. 2. EU FRAMEWORK FOR ENVIRONMENTAL INTEGRATION
Following the inclusion of a new integration clause, in the Amsterdam Treaty in 1997, the
Luxembourg European Council December 1997 stressed its conviction that environmental
protection requirements must be integrated into the Communitys policies and activities, in
particular with a view to promoting sustainable development and requested the Commission
to to submit a strategy to it, before its June 1998 meeting, for achieving that goal.6
The Commission Communication Partnership for Integration7 responded to this request by
highlighting actions needed to translate article 6 into concrete results for environmental
integration. Key guidelines included
The Commissions commitment to ensuring that its key policy initiatives integrate
environmental concerns through the introduction of a detailed environmental assessment
mechanism. The Commissions commitment to undertaking reviews of EU policies and preparing
strategies for action in key sectors, including identification of policy and performance
indicators and indicative targets. The call for the identification by the Council of a set of priority actions for the
incorporation of environmental requirements, and of effective mechanisms for monitoring
strategy implementation. The call for European Council periodical reviews of environmental integration into key
sectoral policies. 6
7
See paragraph 56 of the Presidency Conclusions to the Luxembourg European Council 12-13
December 1997.
COM98333, 27 June 1998. EN
3
EN
Five years on, important progress has been made to give substance to the above guidelines
and in turn achieve further environmental integration, including the following milestones
The launch of the Cardiff process in 1998. The European Council took a significant step
to give practical application to Article 6 by requesting different Council formations to
prepare strategies and programmes aimed at integrating environmental considerations into
their policy areas, starting with energy, transport and agriculture. The process now
embraces nine sectors in addition to the transport, agriculture and energy sectors, Cardiff
covers industry, internal market, development, fisheries, General Affairs and economic and
financial affairs, all of which have adopted integration strategies. In 1999, the Helsinki European Council provided further clarifications as to the
implementation of environmental integration strategies. It stated that the completion
of sectoral strategies should be followed by their immediate implementation. Regular
evaluation, follow-up and monitoring must be undertaken so that the strategies can be
adjusted and deepened. The Commission and the Council are expected to develop
adequate instruments and applicable data for these purposes.8
2001 marked a turning point in the process of environmental integration with the adoption
by the Gothenburg European Council of an EU Sustainable Development Strategy and
the addition of a third, environmental, pillar, to the Lisbon Strategy. Economic growth and
social cohesion now need to be promoted alongside environmental protection. In this new
policy context, the European Council invited the Council to finalise and further develop
sector strategies for integrating environment into all relevant Community policy areas with
a view to implementing them as soon as possible . Relevant objectives set out in the
forthcoming 6th EAP and the Sustainable Development Strategy should be taken into
account.9 The sectoral integration strategies developed under the Cardiff are therefore one
of the means of implementing environmental objectives of the Sustainable Development
Strategy. As part of the implementation of the EU sustainable development strategy, a unified
system for ex-ante impact assessment of all major policy proposals was introduced in the
Commission in 2002,10 starting with a pilot phase in 2003 covering 43 policy proposals. This scheme will allow informed trade-offs to be made on a case by case basis, based upon
sound analysis of economic, social and environmental effects when adopting new policy
proposals. It is an essential complement to the more holistic approach of the sectoral
strategies. In September 2002, the entry into force of Commissions 6th Environment Action
Programme11 6th EAP put renewed emphasis on the importance of environmental
integration. The development under the 6th EAP of thematic strategies on key
environmental issues is an opportunity, which will foster integration as the strategies are
cross-cutting and require joint action from a wide array of policy sectors. 8
9
10
11
Paragraph 47, Presidency Conclusions to the Helsinki European Council Conclusions 10-11 December
1999. Paragraph 32, Presidency Conclusions to the Gothenburg European Council 15-16 June 2001. Commission Communication on Impact Assessment, COM2002276 final, 5 June 2002. Decision 16002002EC of the European Parliament and of the Council laying down the 6th Community
Environment Action Programme, OJ L 242, 10 September 2002. EN
4
EN
In October 2002, the Environment Council called upon the European Council to invite the
Council formations responsible for education, health, consumer affairs, tourism,
research, employment and social policies to develop strategies to promote sustainable
development by integrating environmental considerations into their existing policies and
action.12
As of 2003, most current and new EU Member States had developed national sustainable
development strategies, many of which address the issue of environmental integration and
policy coherence. ENVIRONMENTAL PRESSURES IN KEY INTEGRATION SECTORS
The following provides an illustration of the challenges to be tackled through environmental
integration, with a review of some of the most acute environmental pressures in key integration
sectors. These pressures have been identified and action is being taken by the EU to address
these as described in section 3.
In many cases, this action is too recent for its full benefits yet
to be felt13.However, given the particular severity of some environmental trends, further environmental
integration efforts will need to be steadily pursued at EU and national levels. Fisheries Humans impact on the marine environment through fishing but also through man-
generated climate change, discharges of pollutants and nutrients and a variety of uses of the sea bed
such as aggregate extraction and oil extraction. Fish stocks themselves are also subject to cyclical
variations. Despite these facts, continued over-fishing has been mostly responsible for spawning
stocks and landings have been halved over the last 25 years, despite efforts to address the problem. 40 of all EU catches are taken from stocks that are considered to be below safe biological limits. For
certain types of fish, notably demersal and diadromous fish, the percentage is as high as 60. The
situation for certain species, such as cod and hake, is even more acute. However, the situation is not
bad for all stocks. Pelagic stocks have increased over the last two decades, as have stocks of shrimps
and Norway lobster. The recovery of the pelagic species such as the North Sea herring following a
collapse in stocks in the 1970s demonstrates the potential for stock recovery if the right action is
taken.
The latest report from the International Council for the Exploration of the Sea ICES in October
2003 confirms the need for recovery measures to ensure the rebuilding of a number of stocks.14 In
view of this situation, numerous measures have been taken, and most recently, the December 2003
Fisheries Council agreed recovery plans for a number of species, as well as, for the first time since the
launch of the Common Fisheries Policy in 1983, multiannual management plans. Transport Transport is crucial for the EUs economic competitiveness and for commercial, economic
and cultural exchanges. As economic activity and incomes increase, there has been a trend for
increased transport demand, particular for road transport and aviation. Considerable advances have
been achieved in vehicle and fuel technology resulting in reductions in local air pollutants. However
12
13
14
Paragraph 9, Environment Council Conclusions on putting into practice the European Union
Sustainable Development Strategy and the environmental dimension of the Johannesburg commitments
Brussels, 17 October 2002.
For example in the transport sector, measures to encourage modal shift from road and air transport to
the more environmentally friendly modes of rail and waterway transport, the biofuels directive with a
target of 5.75 market share of motor fuels by 2010, the proposal for a modification of the
Eurovignette directive, and fuel taxation, with lower minimum tax rates for fuels with lower CO2
emissions. Including cod in the North Sea, Skagerrak, Eastern Channel, Irish Sea and West of Scotland for which
ICES advises zero catch. ICESs advice is the same for whiting in the Irish Sea. In the case of hake
from Ireland down to Portugal, ICES recommends rebuilding plans and zero catch for the southern hake
stock. Plans to allow stocks to recover are also recommended for plaice in the North Sea, cod and plaice
in the Celtic Sea and sole in the Western Channel and Bay of Biscay. See International Council for the
Exploration of the Sea Report on cod and other fish stocks in the northeast Atlantic 24 October 2003. httpwww.ices.dkcommitteeacfmcomworkreportaspacfmrep.asp
EN
5
EN
fuel efficiency gains have so far been more than offset by the growth in both passenger and freight
transport, resulting in a net increase in greenhouse gas emissions The International Climate Change
Partnership database, European Environment Agency - EEA. Emissions of greenhouse gases from
the transport sector, principally CO2, grew by 20 in the EU between 1990 and 2000 to represent
21 of total EU greenhouse gas emissions, neutralising the improvements made in other sectors. At a
local level, significant problems remain, in particular congestion, noise pollution and particulate
emissions from the use of diesel. Agriculture Half of the EUs land is farmed - this alone makes farming important for the EUs natural
environment. Farming has contributed over the centuries to creating and maintaining a variety of
valuable semi-natural habitats. Today these shape the majority of the EUs landscapes and are home
to some of the EUs richest wildlife. The links between the richness of the natural environment and
farming practices are complex. While many valuable habitats in Europe are maintained by extensive
farming, and a wide range of wild species rely on this for their survival, agricultural practices can also
have an adverse impact on natural resources. Pollution of soil, water and air, fragmentation of habitats
and loss of wildlife can be the result of inappropriate agricultural practices and land use. In recent
years there has been increasing concern about the effects of intensive agricultural production methods
on both human health and the environment. Agriculture continues to account for about 10 of total EU
greenhouse emissions mainly through methane and nitrous oxide emissions, despite a reduction of
6.4 over the period 1990-2000. In addition, the increased use of pesticides and fertilisers has led to
environmental degradation. The general trends in nitrate concentrations in EU waters may serve as
example. Agricultural activities are not the only activities contributing to water pollution, but they are
responsible for a significant part of it. Overall, levels of nitrate concentrations in groundwater remain
very high, with about 40 of the EU area in a concerning situation in 2001.
EU policies, and notably
the Common Agricultural Policy CAP, are therefore increasingly aimed at heading off the risks of
environmental degradation, while encouraging farmers to play a positive role in the maintenance of the
countryside and the environment. Energy In 2000, the energy sector continued to be the largest contributor to total EU greenhouse gas
emissions, accounting for 27 of total EU 15 emissions15. The EUs energy intensity improved
between 1985 and 2000 decreasing by on average just over 1 per annum, demonstrating
possibilities for a relative decoupling of energy use from economic growth. Further efforts are needed
to improve on current trends. Both renewable energy and energy efficiency offer opportunities for
reducing environmental pressures, but projections are not encouraging. For example, the share of
renewables is for the time being not rising fast enough to meet EU targets. While the EUs total inland
energy consumption has increased steadily, at approximately 1 per year, since 1985, the share of
renewable energy remains low at around 6 2001. Member States are currently implementing
policies to promote energy from renewable energy sources, under the renewable electricity and
biofuels directives. Although it may be a little too early to draw firm conclusions, it seems likely that
stronger efforts will be needed. Good implementation of measures already adopted is of utmost
importance. Latest projections from the EEA indicate that, unless additional policy measures are
taken, the EU will fail to meet its indicative target of 12 by 2010. It seems also unlikely that the EU
will be able to meet its indicative target of generating 22 of gross electricity consumption from
renewables by 2010. In terms of energy efficiency, the full cost-effective potential for energy savings,
estimated at around 18 of current energy consumption, still has to be realised. According the World
Energy, Technology and Climate Policy Outlook published by the European Commission in May
200316, under a business as usual scenario that does not include recent EU climate change policies
the worlds energy consumption will have doubled by 2030 fossil fuels oil will continue to dominate
as energy sources and carbon dioxide emissions will be nearly twice those recorded in 1990. Alternative scenarios based on a strong development of renewable energy and energy efficiency
demonstrate that cost-effective solutions are possible with the right policy input.
15
16
The energy sector refers to coal mining, oil and gas extraction, refineries, electricity generation etc, as
opposed to energy use in industry, transport, households and so on
The World Energy, Technology and Climate Policy Outlook WETO published by the European
Commission on 12 May 2003 was produced by a consortium of EU research teams, including
ENERDATA and CNRS-IEPE from France, Bureau Fédéral du Plan in Belgium and the Commission
Joint Research Centres facility in Seville, Spain. see
http194.185.30.69energysitegpgp_pubs_en.html
EN
6
EN
Industry Measures to integrate environmental considerations into industrial activities have resulted in
substantial positive achievements. These efforts contributed to an overall reduction of carbon dioxide
emissions from EU manufacturing of over 11 in the period 1985 to 2000. At the same time
manufacturing production rose by 31 over the same period. An absolute decoupling of production
from emissions of acidifying gases and ozone precursors has also occurred, while there has been a
relative decoupling of production from energy and raw material use17. However, despite major
improvements in industry over the last decades with regard to several major polluting substances,
industrial production processes still account for a considerable share of the overall pollution in Europe. Industry represents 21 of total EU greenhouse gas emissions and is a major source of pollution for
example heavy metals, volatile organic compounds, nutrients. 3. SECTORAL ASSESSMENT
This section looks at the nine sectors covered so far by the Cardiff process agriculture,
energy, transport, development co-operation, industry, internal market, fisheries, economic
and financial affairs and trade and foreign policy.18
The assessment below is presented so as to reflect the order in which sectoral councils were
invited to develop integration strategies. When they launched the Cardiff process at their
meeting in June 1998, the EU heads of state and government invited three sectors -agriculture,
transport and energy- to start the process. Further sectors were invited to do the same at
following European Council meetings development, industry and internal market in
December 1998 and fisheries, economic and financial affairs and trade and foreign policy
general affairs in June 1999. The starting point of this sectoral assessment is strategy implementation rather than strategy
formulation or contents.19 Environmental integration strategies must be assessed on their
capacity to deliver on the commitments and or objectives set. For each of the nine sectors, the assessment considers the actions that have been taken to date,
pointing to the most recent policy developments and highlighting the challenges and
opportunities for environmental integration in the year to come. Efforts taken to take forward
environmental integration are assessed according to priority objectives see tables under each
sector heading. These objectives are drawn from commitments made in the respective
Council integration strategies, which have been complemented by commitments made
subsequently, notably in the EU 6th Environment Action Programme, the EU Sustainable
Development Strategy and the Plan of Implementation of the Johannesburg World Summit on
Sustainable Development. They are overarching, selective objectives against which
integration efforts to date, which sometimes go beyond the commitments made in original
strategies, can be assessed. 17
18
19
See Chapter 5 of the European Competitiveness Report 2002
It should be noted that actions are taken to promote the integration of environmental concerns into other
policy areas, for example through the EUs research programmes. The 6th Framework Programme has a
thematic priority on sustainable development, global change and ecosystems, focusing on environment
as well as transport and energy, with some actions highlighted in the tables below. The total budget for
this theme over four years is 2.12 billion. The latter were addressed in several studies commissioned by Member States in 2001.
EN
7
EN
3.1. Agriculture
Status
Political commitments
15 November 1999
Agriculture integration strategy adoption in Council
24 April 2001
Council Conclusions on Agriculture Integration
10 July 2002
Commission Proposals on the mid-term review of the Common Agricultural Policy CAP
June 2003
Agreement of the Council of Agricultural Ministers on CAP Reform
By end 2003
Deadline by which a review of the integration strategy should have taken place
Priority objectives of environmental
integration
Progress to date
Commission
Commission and Council
Parliament
Reduce health and environment risks from
agriculture source 1999 Integration Strategy, EU
SDS20, 6th EAP
Commission Proposal COM
2002 394 for complete
decoupling of support from
production by 2005 and
more comprehensive
requirements for cross-
compliance and mandatory
farm advisory services for
farmers linked to cross-
compliance. The Council Regulation
17822003 introduces a
single farm payment SFP
decoupled from production
from 2005 and at the latest
2007. The SFP and other
direct aids will be granted
subject to compliance with
environmental and other
standards and good
agricultural and
environmental conditions
cross compliance. Council Regulation
17832003 increases the
emphasis of rural
development policy on
environment, with greater co-
financing for agri-
environment measures,
support for farm advisory
services voluntary for
farmers. The second package of
reform of Common Market
Organisations decided on by
Council on 22nd April 2004
tobacco, olive oil, cotton and
hops confirms the change of
direction taken in the 2003
reform of the CAP by
decoupling support from the
production of the sectors
concerned. 20
EU Sustainable Development Strategy, adopted by European Council, Gothenburg 2001
EN
8
EN
Cross-compliance
requirements under
Regulation 178303 include
respect for the Wild Birds
and Habitats Directives and
measures to maintain
habitats and landscapes. Article 16 allows increased
support levels for agricultural
practices and management
compatible with the
protection of biodiversity in
Natura 2000 sites. Energy crop premium
introduced. Maintenance of
possibility to grow non-food
crops on set-aside land. Decoupling of agricultural
support under Regulation
178203 is expected to lead
to more sustainable use of
water resources
Better protect naturelandscape and biodiversity
source 1999 Integration Strategy, EU SDS, 6th
EAP, Plan of Implementation of the
Johannesburg WSSD
Commitment to use new
Rural Development
Programme funds to finance
management of Natura 2000
sites. Reduce agricultures greenhouse gas emissions
source 1999 Integration Strategy, EU SDS, 6th
EAP
Sustainable use of natural resources- including
improved use of water resources source 1999
Integration Strategy, EU SDS, 6th EAP
Develop agri-environment indicators to monitor
progress Source 1999 Integration Strategy, 6th
EAP
The IRENA21 project will
develop 35 agri-
environmental indicators to
assess the extent of
environmental integration
into the Common Agricultural
Policy. The 35 indicator fact
sheets and two reports will
be presented by end of
2004. Challenges and opportunities ahead for environmental integration
The 2003 reform of the CAP represents a significant step forward in further integrating
environmental concerns, with on the one hand measures that integrate environmental concerns
into agricultural market and income policy and on the other targeted environmental measures
in rural development programmes. The next step is to use the new and extended policy
instruments now available to Member States in the best possible way to concretely improve
the environmental performance of agriculture. For example, the implementation of cross
compliance standards will encourage farmers to adapt their practices to environmental
requirements. The farm advisory service will be an important tool for improving the
application of standards and use of good practice in the production process. Other opportunities for environmental integration include
The mid-term evaluation of rural development policy and the discussion on the new
programming period 2007-2013 is an opportunity to further strengthen the contribution of
rural development to environmental policy objectives in the context of the 6th EAP and the
Johannesburg Plan of Implementation, in particular as regards climate change and the
21
Indicator Report on the integration of Environmental concerns into the Agricultural policy
EN
9
EN
protection of Natura 2000 sites and other environmental issues. In this context, the
Commission Communication Building our common future COM 101 indicates that
future rural development policy will focus on competitiveness, enhancing the environment
and countryside, including NATURA 2000, and quality of life in rural areas. The Thematic Strategies on Sustainable use of pesticides and Soils foreseen for 2004
and 2005 are intended, respectively, to reduce the impacts of pesticides on human health
and the environment and, more generally to achieve a more sustainable use of pesticides,
and to promote sustainable soil use, focusing in particular on preventing erosion,
deterioration, contamination and desertification. One way of achieving these objectives is
to further adapt farming practices. The Commission Communication to the European Parliament and to the Council on a
Community Action Plan to stimulate organic farming will be presented in the first half of
2004.
EN
10
EN
3.2. Transport
Status
Political commitments
6 October 1999
Transport integration strategy adopted in Council
21 March 2001
Commission review of Transport Councils integration strategy
4-5 April 2001
Council Resolution on integration of environmental concerns into transport policy
12 September 2001
Commission White Paper on Transport Policy
6 December 2002
Council Conclusions on the integration of environment and sustainable development into
transport policy reaffirming commitment to implement the operational part of the
strategy by the end of 2004 and to regularly review it
Priority objectives of environmental
integration
Progress to date
Shifting the balance between modes of transport
source 1999 Integration Strategy, EU SDS,
White Paper on Transport Policy, 6th EAP
Commission
Commission and Council
Parliament
Steps taken to ensure
interoperability and
compatibility between
national railway systems,
and to develop interface with
other transport modes -
package of technical
specifications adopted in
2002
Commission proposal on
Intermodal Loading Units,
April 2003 COM 2003 155
Commission programme for
the promotion of short sea
shipping April 2003. COM
2003 155
Amended proposal for a
regulation on action by
Member States on public
service requirements and the
award of public service
contracts for passenger
transport by rail, road and
inland waterway, COM
2002 107
3rd railway package
containing measures to
revitalise the European
railways. The package
consists of a
Communication, four
legislative measures and a
Working Document on the
extended impact assessment
for the gradual opening up of
Second railway package
adopted on April 2004 that
includes
Steps taken to reform
and liberalise the railway
sector to boost its
competitiveness and stop
decline in its use-
package amendment of
Directive 1991440
Steps taken to ensure
interoperability and
compatibility between
national railway systems,
and to develop interface
with other transport
modes-amendment of
Directives 9648EC and
200116EC
Regulation establishing a
European Railway
Agency
Safety Directive
COM200221
Revision amending decision
169296EC on Community
guidelines for the
development of the trans-
European transport network
adopted in April 2004
Marco Polo support
programme for intermodal
EN
11
EN
Fair and efficient pricing of transport infrastructure
source 1999 Integration Strategy, EU SDS, 6th
EAP
Quantified targets and indicators source 1999
Integration Strategy, 6EAP
Reduce greenhouse gas emissions from
transport source 1999 Integration Strategy, EU
SDS, White Paper on Transport Policy, 6th EAP
Reduce other air pollutants source 1999
Integration Strategy, White Paper on Transport
Policy, 6th EAP
freight transport adopted July
2003. Sixth Framework Programme
for RTD, adopted in 2002,
support for research and
development of Sustainable
Transport Systems Under
priority 6- Sustainable
Development, Global
Change and Ecosystems. Directive 200114EC of
February 2001 on the
allocation of railway
infrastructure capacity,
levying of charges for the
use of railway infrastructure
and safety certification
the market for international
passenger services, adopted
in March 2004 COM 2004
139, 140, 142, 143, 144. Commission proposal for
revision of Eurovignette
directive on charging of
heavy goods vehicles,
adopted July 2003, COM
2003 448.
Indicators Transport and
Environment Reporting
Mechanism TERM
Negotiated agreement with
the car industry supporting
its commitment to reach
140gkm by 20089
European and Japanese
carmakers on track to meet
their commitments, Korean
car industry still somewhat
lagging behind. Directive 200330EC on the
promotion of bio-fuels and
other renewable fuels for
transport adopted in 2003
with an indicative target of
5.75 of biofuels
contribution to diesel and
gasoline consumption by
2010
Final Council and European
Parliament positions on the
Commissions ship
emissions strategy,
December 2003
Adoption of directive
200317EC introducing
requirements on the sulphur
content of road transport
fuels. By 2003 only 5 Member
States had ratified Annex VI
to the MARPOL convention
on the prevention of air
pollution from ships
EN
12
EN
Reduce noise originating from transport source
1999 Integration Strategy, White Paper on
Transport Policy, 6th EAP
Safer and cleaner maritime transport source
1999 Integration Strategy, White Paper on
Transport Policy, 6th EAP
Amended proposal for a
directive on the shipment of
waste COM 2004 172
Proposal for a revised
directive on sulphur in
marine fuels COM 2002
595. Proposals from the
Commission March 2003 to
implement international rules
to prevent deliberate
discharges of waste or cargo
residues to the sea and on
imposing criminal sanctions
on those responsible for
pollution by ships.
Implementation of the 60 or
so measures set out in the
White Paper on European
transport policy is hoped to
lead to a decoupling of the
transport
link
growth
economic
growth, without the need to
unduly restrict the mobility of
people and goods. between
and
Decoupling of transport growth from economic
growth source 1999 Integration Strategy, EU
SDS, 6th EAP
Environmental noise
directive 200249EC
adopted, requiring strategic
noise maps to be made by
2007
Community framework for
noise-related operating
restrictions at noise-sensitive
airports Directive
200230EC- including
noisiest aircraft Chapter 2
banned from operating in the
EU from 1 April 2002. Adoption of a range of
directives and regulations
under the Erika packages I
and II in 2001, introducing
new maritime safety
measures to reduce the risks
of oil spills. Adoption of Regulation
172603 banning the
transport of heavy oils in
single hull tankers and
speeding up the phase out of
single hulls and amendment
to the MARPOL convention
approved in December 2003
to this effect. Extension of the role of the
European Maritime Safety
Agency, European
Parliament decision of
February 2004
STEER the transport part
of the Intelligent Energy
Europe programme which is
aimed at addressing
transport energy issues. Challenges and opportunities ahead for environmental integration
In its conclusions of 6 December 2002, the Transport Council noted that although progress
has been made to reduce the environmental impact of transport in Member States and at
Community level, significant progress still has to be made to reach the objectives set out in
the 1999 Council strategy. The need for further action was corroborated in the 2003
European Climate Change Programme ECCP Progress Report, which stated the limitation
of greenhouse gases in the transport sector will require the development of new strategies and
strengthened policies and measures in the future. This is necessary to preserve the overall
reductions that are achieved in view of meeting the target of the first commitment, and even
EN
13
EN
more prominently, in view of future commitment periods. The White Paper on Transport is
comprised of a series of measures ranging from pricing to revitalising alternative modes of
transport to road and targeted investment in the trans-European network. This integrated
approach aims to allow the market shares of the alternative modes to return to their 1998
levels and thus shift the modal balance from 2010 onwards. Achieving this is harder than it
may look, as there has been a historical imbalance in favour of road transport for the last 50
years. Proper implementation of the measures proposed in the framework of the White Paper
is of utmost importance. Other opportunities for environmental integration include
A continuation of efforts to shift the balance between modes of transport, especially
through the full implementation of measures in the White Paper on transport policy.22
Discussions on the rapid growth in greenhouse gas emissions from aviation and shipping in
the context of the International Civil Aviation Organisation and the International Maritime
Organisation have not yet resulted in concrete proposals. Specific actions to reduce
emissions will have to be taken by the EU as decided in the 6th Environment Action
Programme. In parallel, emission standards, in particular fine particulate matter and NOx emissions
from diesel cars and trucks need further attention. Commissions contribution to the Gothenburg European Council called for a shift of
balance between the modes by way of an investment policy in infrastructure geared to the
railways, inland waterways, short sea shipping and intermodal operations. In this
framework, Transeuropean Networks are set to play an important role. The implementation
of the Trans-European Networks TENs, as boosted by the European Growth Initiative
through the Quick-start Programme, has to be done in accordance with environmental
standards. A preference should be given to projects offering strong environmental
benefits. For example, projects linked to supporting a hydrogen economy or shifting traffic
from road to rail or from road to the sea. 23 As a first step, the identification of priorities
for pending projects should take fully into account the EUs environmental and sustainable
development commitments. The voluntary CO2 commitments by the passenger car manufacturers are up for midterm
review in 20034. One element is review of the potential to move further towards the
Community target of 120 CO2km by 2012. In addition, the other pillars of the strategy,
e.g. car taxation and car labelling, need to be developed further. Measures to encourage the purchase of vehicles that use less energy and with reduced
pollutant emissions should be promoted. impacts,
Further measures are planned to reduce the risks of maritime accidents and associated
environmental
include
development of a legal framework for investigations after accidents, a harmonised traffic
information and management system and reinforcement of controls in ports. Further work
is needed to build on commitments made by several member states through the IMO to
designate Particularly Sensitive Sea Areas.
including an Erika-III package. These should
22
23
COM2003745, 3 December 2003, p. 46. Communication from the Commission A European Initiative for Growth Investing in Networks and
Knowledge for Growth and Jobs COM2003690 final, 11 November 2003. EN
14
EN
3.3. Energy
Status
Political commitments
November 1999
Energy integration strategy adopted in Council
29th November 2000
Commission Green Paper Towards a European strategy for the security of energy
supply
21 March 2001
Commission review of energy integration strategy
14-15 May 2001
IndustryEnergy Council Resolution on Energy Integration, setting deadline of December
2002 for second review
15-16 June 2001
Second set of indicators presented to the Gothenburg European Council
25 November 2002
Council Conclusions on sustainable development commitment to pursue the
implementation of the strategy in a way that is supportive to the conclusions reached at
the 2002 World Summit on Sustainable Development. Priority objectives of environmental
integration
Milestones to date
Promoting the efficient use and production of
energy source 1999 Integration Strategy, Green
Paper on Energy Supply, EU SDS, 6th EAP, Plan
of Implementation of the Johannesburg WSSD
Developing an efficient internal energy market
including
energy
for
generators 1999 Integration Strategy, Green
Paper on Energy Supply
renewable
access
Increasing the competitiveness and use of
renewable energy sources source 1999
Integration Strategy, Green Paper on Energy
Supply, EU SDS, 6th EAP, Plan of
Implementation of the Johannesburg WSSD
Commission
Commission and Council
Parliament
Commission Proposal for a
Directive COM 2003 453
on establishing a framework
for the setting of eco-design
requirements for energy-
using products adopted in
August 2003
Commission Proposal for a
Directive COM 2003 739
on promoting energy
efficiency at the level of final
consumption and energy
services, adopted December
2003
Directives 2002 31EC,
2002 40EC and
200366EC on energy
labelling of domestic
appliances
Directive 200291EC
adopted in December 2002
on the energy performance
of buildings
Directive 20048EC on
cogeneration, adopted
February 2004. Revision of internal energy
market under directives
200354EC electricity and
200355EC gas more
focus on consumer choice,
energy efficiency and priority
access for Renewable
Energy Sources RES
Directive 200177EC on the
promotion of electricity from
renewable energy sources,
adopted in September 2001,
with an indicative EU target
of 22 of electricity
consumption from renewable
sources by 2010. Directive 200330EC,
EN
15
EN
Internalising external costsenvironmental
benefits source 1999 Integration Strategy, EU
SDS, 6th EAP, Plan of Implementation of the
Johannesburg WSSD
Giving adequate priority to energy research and
technological development and demonstration
activities in Europe Source 1999 Integration
Strategy, Green Paper on Energy Supply, EU
SDS
integration
Develop
to monitor
progress Source 1999 Integration Strategy, 6th
EAP
indicators
adopted in May 2003, on the
promotion of biofuels and
other renewable fuels for
transport
Energy products taxation
directive 200396EC
adopted in October 2003
Intelligent Energy in Europe-
Community programme for
2003-2006 to promote
energy efficiency and
renewable energy Sixth
Framework Programme for
RTD, adopted in 2002,
support for research on
Sustainable Energy Systems
Under priority 6- Sustainable
Development, Global
Change and Ecosystems
Indicators ERM Energy-
Environment Indicators
Contribute to Meeting the Kyoto Targets
Source 1999 Integration Strategy, EU SDS, 6th
EAP
Directive 200387EC on
greenhouse gas emissions
trading, adopted October
2003
Challenges and opportunities ahead for environmental integration
The second review of the energy strategy was due in 2002. Instead, the Energy Council 25
November 2002 adopted Conclusions on sustainable development in which it recalled the
importance of the objective of achieving by 2010 12 of gross energy consumption from
renewable energy and 22 of gross electricity consumption from renewable electricity
production. In addition, the Council encouraged the promotion of energy systems compatible
with sustainable development through the use of improved market signals and by removing
market distortions, and called for further use of market based instruments in the energy field. Regarding the implementation of its integration strategy, the Council stated its determination
to pursue its implementation in a way that is supportive to the conclusions reached at
the WSSD24. In light of this, future action will focus on the following areas, complementing
long term energy policy objectives to ensure energy security and the economic functioning of
energy markets
Timely implementation of the Directive on the promotion of electricity from
renewable energy sources and of other relevant legislation recently set in place is a
priority. Existing support schemes for renewables in the Member States can provide
valuable hands-on expertise on the environmental and economic success of various support
systems. A proactive policy is needed in Member States for a fair integration of renewable
24
WSSD Second World Summit on Sustainable Development held in Johannesbourg in August-
September 2002. EN
16
EN
energy sources in the liberalised internal electricity market, while acknowledging fully
their environmental and societal value. In addition, it is necessary to further support
technological breakthroughs in the field of renewables and the effective dissemination of
research in the field of energy efficiency in order to overcome market barriers.25
Given the importance of energy related emissions and in order to translate legislation into
concrete results for the environment, it is important that Member States complete their
National Allocation Plans under the Directive on Emissions Trading, due for submission to
the Commission by March 2004, and increase their efforts to meet their burden-sharing
targets under the Kyoto Protocol by developing and implementing national climate change
strategies. In addition new policies to further integrate environment into energy policies
need to be considered. 25
It should be noted in this context that EU Member States were founding members of the Johannesburg
Renewable Energy Coalition. More info on httpforum.europa.eu.intPublicircenvctfhome see
also below
EN
17
EN
3.4. Industry
Status
Political commitments
November 1999
Council Report to the Helsinki European Council on environmental integration
14-15 May 2001
Council Conclusions on industry integration
6 June 2002
Council Conclusions on enterprise policy and sustainable development
the
Commission was invited to report every second year on the progress made on the
contribution of Enterprise policy to Sustainable Development.
and the Council undertook
to evaluate on a regular basis whether the balance between the three pillars of
sustainable development is maintained, in particular in terms of ensuring the
competitiveness of European enterprises and to draw appropriate conclusions in relation
to any corrective action required. Priority objectives of environmental
integration
Milestones to date
Commission
Commission and Council
Parliament
Reduce impacts of chemicals on human health
and the environment source EU SDS, 6th EAP,
Plan of Implementation of the Johannesburg
WSSD
Proposal for a new
regulatory framework on the
registration, evaluation,
authorisation and restrictions
of chemicals REACH
COM 2003 644, of October
2003
Proposal for Directive COM
2003 723 on Batteries
Recycling adopted
November 2003. Integrating environmental aspects into
standardisation activities to meet environmental
objectives and support sustainable development
Source Council Integration Decisions 2002, EU
SDS
Communication on
integration of environmental
aspects in European
standardisation, COM2004
130, February 2004
Sustainable production and consumption
Integration Decisions and
source Council
Reports 1999, 2002, EU SDS, 6th EAP, Plan of
Implementation of the Johannesburg WSSD
Communication Basic
orientations for the
sustainability of European
tourism COM2003716 of
November 2003
Development of Integrated
Product Policy IPP
including Communication on
IPP, COM 2003 302, June
2003
Communication on the road
to sustainable production on
Progress in Implementing
the Integrated Pollution
Prevention and Control
IPPC- Directive, COM 2003
354, June 2003
EN
18
EN
Communication Industrial
policy in an enlarged Union
COM2002714final of
December 2002 recognised
the need to strengthen
policies in the area of
sustainable production
First BEST exchange of
best practice Study on
environmental management
systems and SMEs 2002
Contributing to Kyoto Protocol targets Source
Council Report 1999, EU SDS, 6th EAP
Directive 200387EC on
greenhouse gas emissions
trading, October 2003
Promoting the development of environmental
technology Source Council Decision 2002, EU
SDS, 6th EAP
Proposal for an
Environmental Technologies
Action Plan COM 2004 38,
January 2004
Challenges and opportunities ahead for environmental integration
Adoption by the Council and Parliament of the Commissions proposal for a new
chemicals policy is a priority so as to allow the timely entry into force of the REACH
system. The Communication on Sustainable Production, planned for 2004, will focus on the way
producers integrate environmental aspects measures to reduce the impacts of their
production processes and of their products on the environment into their long-term
business strategy, and create market opportunities through superior environmental
performance. The Thematic Strategy on waste prevention and recycling, coupled with the strategy
on sustainable use of natural resources planned for 2005 will focus on the means to
promote more sustainable waste management, to reduce waste generation minimising the
environmental impacts of waste generated and of increasing resource efficiency and reduce
resource use. The Action Plan on Innovation planned for 2004 as a follow-up to the Commission
Communication on Innovation of 2003 will contribute to further promoting clean
technologies, in line with the Environmental Technology Action Plan ETAP adopted in
January 2004. The new Programme on the Competitiveness of Enterprises to be adopted in 2004 to
replace the current Multiannual Programme for Enterprises and Entrepreneurship expiring
in 2005, will foster progress towards the objectives of the Lisbon Strategy and therefore,
including environmental integration
EN
19
EN
3.5. Internal Market
Status
June 1999
Political commitments
Commission Communication Strategy for integrating the environment into the single
market COM 99 263. November 1999
Council Report to the Helsinki European Council on environmental integration
March 2000
Community guidelines on state aid for environmental protection
31 May 2001
Council strategy on the integration of environment into internal market policies adopted
4 July 2001
Commission Interpretative Communication on public procurement and the environment
14 November 2002
Council Report on integrating environmental protection and sustainable development
into internal aspects of competitiveness policy comprehensive review planned for 2003
to take into account the EU Sustainable Development Strategy and the World Summit
on Sustainable Development
By end 2003
Deadline by which the Competitiveness Council was due to review its strategy
Priority objectives of environmental
integration
Milestones to date
Commission
Commission and Council
Parliament
Interpretative
Communication on public
procurement and the
environment COM 2001
0274
Practical handbook on green
procurement, to be adopted
after the directives, before
summer 2004
Council and European
Parliament adoption in March
2004 of the Directive
200418EC on coordination
of procedures for the award
of public supply contracts,
public services contracts and
public works contracts
classical directive and the
Directive 200417EC on
procurement procedures of
entities operating in the
water, energy, transport and
postal services sectors
utilities directive. Public procurement Source Council Report on
Integration 199926, EU SDS
Better fit between free movement of goods and
services and the environment Council Report on
Integration 1999
Implementation of environmental Internal Market
legislation Council Report on Integration 1999
Challenges and opportunities ahead for environmental integration
The Commission outlined priorities for 2003-2006 in a Communication on the Internal
Market Strategy COM2003238 final.
Actions of particular importance for further
integration of environmental considerations into Internal Market legislation include
26
Report from Internal Market Council to Helsinki European Council, November 1999
EN
20
EN
Adoption by the Council and European Parliament of the framework Directive on the eco-
design of energy using products
Review of the Community Guidelines on State aid for Environmental Protection timing
2004- 2007, to adjust the framework to adapt it to the increasing sophistication of
investments in environmental technologies and to new forms of publicprivate partnership. The Commission should also put forward a proposal to restructure the tax bases of the annual
circulation and registration taxes in order to make passenger car taxation more carbon dioxide
efficient and more consistent with the Internal Market. EN
21
EN
3.6. Development co-operation
Status
Political commitments
November 1999
Council Conclusions on integrating environment and sustainable development into EC
Development Policy
7 November 2000
Council Regulation 24932000 on measures to promote the full integration of the
environmental dimension in the development process of developing countries
10 November 2000
Council and Commission Joint Statement on EC Development Policy commitment to
environmental integration into the Communitys development instruments. 31 May 2001
Strategy for the integration of environmental considerations into development policy to
promote sustainable development Council Conclusions
By end 2004
First review of integration strategy foreseen
Priority objectives of environmental
integration
Milestones to date
Commission
Commission and Council
Parliament
Better exploit development and environment
synergies Source 2001 Integration Strategy, EU
SDS, 6th EAP
Council Conclusions on the
Action Plan on Forest Law
Enforcement, Governance
and Trade, adopted 13th
October 2003. Parliamentary
motion 19th January 2004
Council conclusions of 27th
January 2003 on Fighting
Rural Poverty European
Community policy and
approach to rural
development and sustainable
natural resources
management in developing
countries
Council conclusions on water
management in developing
countries, 30 May 2002. Launch of EU Water and
Energy Initiatives COM
2002 132 and COM 2002
408 September 2002
Adoption of the Action Plan
on Forest Law Enforcement,
Governance and Trade COM
2003 251 May 2003
Publication of joint agency
reports World Bank, DFID,
UNDP, EC on Linking
poverty reduction and
environmental management
and on poverty and climate
change
Commission Communication
Fighting rural poverty
European Community policy
and approach to rural
development and
sustainable natural
resources management in
developing countries
COM2002429 final
Commission Programming
guidelines for environment in
developing countries and
tropical forests 2002-2004
COOPENER support for
initiatives for the promotion
of renewable energy sources
and energy efficiency in the
EN
22
EN
Commitments and obligations of Multilateral
Environmental Agreements MEAs
mainstreamed into development cooperation
Source 2001 Integration Strategy, 6th EAP, Plan
of Implementation of the Johannesburg WSSD
Council conclusions of
December 2003 on the
Communication Climate
Change in the context of
development co-operation
developing countries, as part
of the Intelligent Energy-
Europe Programme.
2nd Report of the European
Community to the
Conference of the Parties of
the Convention on Biological
Diversity CBD on the
implementation of the CBD
October 2002
Communication Climate
Change in the context of
development co-operation
COM200385
EU-ACP Joint paper on
combating drought and
desertification 15-16 May
2003
Community Report May
2002 on activities in support
of the implementation of the
UN Convention to Combat
Desertification
for new
financial means
Need
the
implementation of Multilateral Environmental
Agreements MEAs Plan of Implementation of
the Johannesburg WSSD
for
Challenges and opportunities ahead for environmental integration
The review of the EU Sustainable Development Strategy planned for 2004 provides the
opportunity to better integrate the internal and external pillars of the Strategy. The mid-term review of Country Strategy Papers funded under the Cotonou
agreement scheduled for 2004 offers an opportunity to strengthen environment and
development synergies, which should be seized, including strategic environment reviews
of Country Strategy Papers and the establishment of environmental profiles during the
preparation of country strategies
The EU Water Initiative should be taken forward by moving to action on the ground in
concert with all major stakeholders, following the decision by Council in March 2004 on
initial funding for the ACP-EU water facility. The EU Energy Initiative should also be
taken forward, notably by ensuring adequate financing. The initiative should assist in
identifying energy environment links, to provide modern, environmentally sustainable,
energy services to the general public, particularly in Sub-Saharan Africa. The Action Plan for Forest Law Enforcement, Governance and Trade, should be taken
forward by the Commission, in particular by adopting a Regulation on the subject in 2004
with a view to implementing a voluntary licensing scheme for timber exports from partner
countries. A Sustainability Impact Assessment SIA of this scheme is scheduled to take
place in 2004. Still on the theme of forests, the Commission will propose a negotiating
EN
23
EN
mandate for the re-negotiation of the International Tropical Timber Agreement, which will
take place in July 2004. The review of the Biodiversity Action Plan for Economic and Development Cooperation
in 2004 offers opportunities to better address biodiversity issues in development
cooperation. In the framework of the review of the integration strategy foreseen for 2004 and the
evaluation of environment aid, the Union should address in priority the need for new
financial means to facilitate the implementation of Multilateral Environmental Agreements
and other key environmental policies in developing countries. The strategy for integration of environmental considerations into development policy sets a
timetable and indicators. Key actions for 2004 include the training in environmental
integration for headquarter and delegation staff working on development issues, setting up
an environmental helpdesk, evaluating the budget line on environment in developing
countries and tropical forests and drafting new programming guidelines for 2005-2006 and
updating the manual on integration for development cooperation. EN
24
EN
3.7.
Fisheries
Status
Political commitments
16 March 2001
Commission Communication on the elements for a comprehensive integration strategy
20 March 2001
Commission Green Paper on the Reform of the Common Fisheries Policy CFP
28 March 2001
Community Biodiversity Action Plan for Fisheries and Aquaculture
25 April 2001
28 May 2002
By end2005
Council Conclusions on integration of environment and sustainable development into
CFP
Commission Communication on CFP Reform and related proposals Commission Action
Plan to integrate environmental protection requirements into CFP
First report by the Commission to the Council and European Parliament on the
environmental performance of the CFP
Priority objectives of environmental
integration
Milestones to date
Commission
Commission and Council
Parliament
CFP should explicitly include environmental,
economic and social objectives, which should be
considered on a same footing. These objectives
must apply to the Communitys external fisheries
policy and in particular fisheries agreements with
developing countries Source EU SDS
Reduction in fishing pressure on fishing grounds
to sustainable levels source 2001 and 2002
Commission Communications on integration by
2015 source Plan of Implementation for
Johannesburg WSSD
Emergency measures to
protect certain deep sea
habitats such as coral reefs
from effects of bottom
trawling, e.g. for Darwin
Mounds coral reefs,
Commission Regulation
14752003, extended by
further regulations and
Commission proposal COM
2004 58 for longer term
measures
Commission proposals for
recovery plans for sole,
southern hake and Norway
lobster, January 2004 Total
Allowable Catch regulation
for 2004, effort regime in
Western waters. Eco-system-based approach to fisheries policy. Improvement of fishing methods with a view to
reducing discards, incidental by-catch and impact
on habitats source 2001 and 2002 Commission
Communications on integration, Plan of
Implementation for Johannesburg WSSD
.
EN
26
EN
3.8. Economic and financial affairs
Status
Political commitments
20 September 2000
Commission Communication on integrating environmental issues into economic policy
27 November 2000
Council Report to the Nice European Council
5 March 2002
Strategy on integrating environmental issues into economic policy adopted in Council
Annual
Broad Economic Policy Guidelines BEPGs to be used to monitor and review progress
Priority objectives of environmental
integration
Milestones to date
Commission
Commission and Council
Parliament
Decouple
resource use and environmental
pressure from economic growth source 2002
Integration Strategy, EU SDS
Insertion of environmental
considerations in BEPGs
since 2001
Inclusion of environmental
indicators in the list of
structural indicators
On the basis of the polluter-pays principle,
increasingly rely on market mechanisms and
market-based instruments to promote
environmental protection source 2000
Commission Communication, 2001 Council report
and 2002 Integration Strategy, EU SDS
Base policy decisions on sound analysis of
economic, environmental and social costs and
benefits source 2002 Integration Strategy and
2001 Council report, EU SDS
Introduction of Extended
Impact Assessment scheme
in 2002
Energy products taxation
Directive 200396EC
adopted in October 2003
Challenges and opportunities ahead for environmental integration
Building upon the new Directive on energy products taxation, which entered into force in
January 2004, further steps need to be taken to foster the use of flexible, market-based,
instruments to promote environmental protection. To this end, the Commission will
present in 2004 a Communication on the subject. The current Broad Economic Policy Guidelines, which are a major input to the preparation
of the Commission Spring Report and involve establishing a dialogue with the Member
States on economic policy, cover the period 2003-2005. While they include general
environmental
environmental
recommendations should be considered for the BEPGs for 2005 onwards, where there is
evidence of a problem that is specific to the country concerned and which poses a
substantial economic challenge or has implications for economic policy
country-specific
considerations
2001,
since
EN
27
EN
Further action should be taken, using the OECD framework to be published at the end of
2004, to highlight environmentally harmful subsidies, and to consider their removal, albeit
taking into account their social and economic aspects as set out in the Environmental
Technologies Action Plan. The Commission should put forward proposals for more ambitious environmental targets
for energy taxation within two years of the energy products tax directives adoption, as set
out in its communication COM 2001 264 on the Sustainable Development Strategy. EN
28
EN
3.9. Trade and foreign policy
Status
Political commitments
9 April 2001. Council Conclusions on environmental integration in the external policies of the General
Affairs Council GAC
February 2002
Commission Communication Towards a global partnership for sustainable development
11 March 2002
Strategy on integrating environment into external policies adopted in Council
March 2003
European Council Conclusions on the follow-up of WSSD
June 2003
Thessaloniki European Council Green Diplomacy Initiative
By end 2003
First strategy review foreseen
Priority objectives of environmental
integration
Milestones to date
Commission
Commission and Council
Parliament
Promote mainstreaming of environment in the
outcome of trade negotiations on the Doha
Development Agenda and bilateralregional
agreements, clarifying the interface between
multilateral trade and environmental policy and
improving market access for environmental goods
and services source 2002 Integration Strategy,
6th EAP, Plan of Implementation of the
Johannesburg WSSD
Provide technical assistance, capacity building for
negotiations and implementation in the trade and
environment interface source 2002 Integration
Strategy , Plan of Implementation of the
Johannesburg WSSD
Foster greater Corporate Social Responsibility
CSR in trade and investment decisions through
voluntary international codes of conduct
source 2002 Integration Strategy , Plan of
Implementation of the Johannesburg WSSD
Work towards adoption of export credit disciplines
with strong integrated environmental
considerations source 2002 Integration
Strategy, 6th EAP
On-going development of
Sustainability Impact
Assessments of WTO
negotiations. Sustainability Impact
Assessments for regional
and bilateral trade
agreements on-going EU-
Gulf Cooperation Council
GCC, Economic
Partnership Agreements with
ACP countries, Euromed,
EU-Mercosur. Launching of the Sustainable
Trade and Innovation Centre
in Johannesburg as a type-II
initiative. Establishment of the
European Multi-Stakeholder
Forum on CSR in 2002,
including round tables on
Development, Environment
and Trade. Decision in 2002 to include
Sustainable Development in
the negotiations for an EU-
Mercosur Free Trade
Agreement. Adoption of the OECD
Recommendation on
Common Approaches on
Environment and officially
Supported Export Credits in
December 2003. EN
29
EN
Mainstream environmental objectives into
European foreign policy source 2002 Integration
Strategy, 6th EAP
European Green diplomacy
initiative June 2003
Raising the profile of environmental issues in the
EUs relations with third countries and regions
source 2002 Integration Strategy
Launching of the ECChina
Ministerial Dialogue on the
Environment in November
2003.
Meetings of the ASEM
Environment Ministers in
January 2002 and October
2003. European Council endorsed
2nd Northern Dimension
Action Plan in October 2003
Conclusions of several Euro-
Mediterranean Ministers
meetings Environment,
Athens, July 2002
Agriculture, Venice,
November 2003 Foreign
Affairs, Naples, December
2003
Challenges and opportunities ahead for environmental integration
The Union should take on board the challenge, recognised in the European Security
Strategy adopted by the December 2003 European Council, that climate change could pose
over the next decades through increasing competition for natural resources, notably water. This might create further turbulence and migratory movements in various regions. The European Neighbourhood Policy Wider Europe Initiative, under development
following the adoption of the Commission Communication of March 2003, addresses
environmental issues. As part of this, the reflection on establishing a New Neighbourhood
Instrument offers an opportunity to take into consideration the particular environmental
challenges of the countries concerned. The environmental dimension should be integrated in the planned Common European
Economic Space CEES, endorsed at the EU-Russia Summit in November 2003. The recently set-up European Green Diplomacy Initiative should be built upon to
enhance operationally the EUs voice and influence on international environmental
negotiations and processes. It should also enhance dialogue with key partners on
environmental issues. The Commission and Member States should further promote a trade and environment
agenda in WTO negotiations in the framework of the Doha Development Agenda and the
environment dimension of regional and bilateral trade agreements should be strengthened,
notably through improved Sustainability Impact Assessments and use of their results in
negotiations. Implementation of the OECD Recommendation on Common Approaches on Environment
and Officially Supported Export Credits, should be taken forward with Member States and
additional action taken to enhance the contribution of export credits to sustainable
development, for example for renewable energy. EN
30
EN
4. THE NEED TO IMPROVE DELIVERY ON ENVIRONMENTAL INTEGRATION
From the analysis of sectoral achievements above, it may be concluded that the Cardiff
process has produced mixed results. On the positive side, it has helped bring about concrete
improvements in some sectors - the Commissions initiatives on renewable energy and energy
efficiency being an undeniable step forward on that score. The 2003 and 2004 CAP reform
greatly contributed to progress towards Cardiff process objectives. The Cardiff process has
also contributed to raising the profile of environmental integration, now regularly discussed at
EU level. However, environmental integration commitments are still largely to be translated into further
concrete results for the environment. To date, the Cardiff process has failed to deliver fully on
expectations. It suffers from several shortcomings
A general lack of consistency quality and ambition vary widely from one sector to
another. Not all Council formations have shown the same degree of commitment to the
process. Some strategies have taken the form of a fully developed set of environmental
commitments, with deadlines, milestones, and reporting and review mechanisms. Others
are limited to declarations of intent through Council conclusions, more focused on how
environmental policy should be pursued than on commitments for environmental
integration in the concerned sectors.
Ways of improving consistency should be explored. Political commitment could be strengthened The Cardiff process seems to have been
perceived by several Council formations as a pro forma exercise, imposed on them by the
European Council, for which they did not feel ownership. The pace of progress seems also
to have varied according to the degree of commitment to environmental integration of the
successive Council Presidencies. Delivery, implementation and review mechanisms can be improved Undoubtedly
some perseverance is needed, as integration efforts require time to pay off the sectors that
first developed integration strategies have tended to achieve results, as illustrated by
agriculture. However, provisions for implementation can help delivery.
For example, the
Development strategy adopted in 2001 goes into detail on measures needed for delivery on
the ground, including human resource issues, awareness raising and training. However,
many Council formations seem to have interpreted Cardiff as a one-off exercise. Yet
integration is a dynamic process, which requires regular monitoring, reviewing and
updating to be effective. But only a few strategies set out plans for regular reviews. For
example, the Energy Strategy adopted in 1999 includes a commitment to review every two
years.
Clearer priorities and focus are needed Many strategies have tended to be all-inclusive
and failed to clearly identify priority areas where focussed actions could make a difference. However, the momentum of environmental integration appears to be boosted for sectors,
for which the Union has set clear targets and milestones. For instance, the 1999 Energy
Strategy and 2001 Development Strategy re-emphasise established targets for 2010 or
2015 for action on climate change, renewable energy and combined heat and power and
for reversing the trend in loss of environmental resources. The Development and Fisheries
strategies also include a table of milestones setting out actions with deadlines for their
completion. In addition, where competence lies with the Union, targets against which
EN
31
EN
progress can be monitored and reviewed are often easier to achieve. In many other areas,
objectives tend to be more ambiguous and the path towards integration less clear.
It often
requires compromises between different national interests that are difficult to reach and the
sometimes equally difficult mobilisation of national efforts for their implementation. Adopting a strategic forward looking approach would help So far, many of the most
significant steps taken to advance environmental integration at EU level have responded to
crisis situations, in the form of pressing threats to sustained economic activity fisheries,
repeated food scares agriculture or recurring ecological disasters maritime transport,
rather than resulted from the environmental integration strategies devised in the framework
of the Cardiff process. More focus on the development and implementation of the strategic
approach established by the Cardiff process would increase the cost-effectiveness of
environmental integration. It is generally accepted that strategic approaches by planning
ahead, allow better management of risks and can reduce both future damage costs and the
costs of avoiding damage. These shortcomings have led to calls for renewed action. In October 2002, the Environment
Council called upon the European Council to reinforce the Cardiff process with the aim
of achieving sustainable development, in particular by calling upon relevant Council
formations to put into practice the decoupling of economic growth from resource use and
environmental degradation under the co-ordination of the Council General AffairsExternal
Relations in accordance with the Seville conclusions, and to give an account of integration
actions and achievements at the Spring European Council every two years starting from 2003
or 2004 as appropriate27. The Brussels European Council of March 2003 reaffirmed the importance of the
environmental integration mandate in the context of the EUs strive to move towards
sustainable development, and called to this end for a strengthening of the Cardiff process,
notably through the development of sector-specific decoupling objectives. The specificities
of each strategys institutional and policy contexts should of course be taken into account in
setting these objectives as well as in the future development of the Cardiff process. The Spring European Council of March 2004 again emphasised the importance of
environmental integration, stating Growth, to be sustainable, must be environmentally
sound. Through better policy integration and more sustainable consumption and production
patterns, growth must be decoupled from negative environmental impacts. 27
Environment Council conclusions on putting into practice the European Union sustainable development
strategy and the environmental dimension of the Johannesburg commitments Brussels, 17 October
2002. EN
32
EN
5. WAY FORWARD
As underscored by the Spring European Council in March 200328 and in the Environment
Policy Review 2003, environmental integration needs to be reinvigorated. This is supported
by the assessment above. Given the persistence of significant negative environmental
pressures and unsustainable trends, the Cardiff process must be pursued, in some cases with
more vigour. However, successful integration of environmental concerns into other sectors
will require further steps to support this process and promote integration, within the wider
sustainable development context. In the following section a number of suggestions are made
for increasing the effectiveness of the Cardiff process through complementary actions at the
Community and national level to ensure that it feeds through into environmental
improvements on the ground. 5.1. Revitalising the Cardiff process
i The Cardiff process needs clear leadership. A clear policy signal should be given by the
European Council on the need to pursue environmental integration with determination
through the Cardiff process. The European Council should regularly be informed on the pace
of progress in this area and therefore provided with the opportunity to recall its commitment
to environmental integration, so as to give the political impulse needed to mobilise the
different Council formations to that end. ii In line with the March 2003 European Council conclusions, the Commission will carry out
an annual stocktaking of the Cardiff process to feed into the Environmental Policy Review
and the Commissions Spring Report and to contribute to the Spring European Council
discussion. Approaches to promoting good practice and consistency between strategies in terms of
monitoring, review and updating the content of strategies should also be explored. The
Commission will develop a common framework and guidelines during 2005, identifying
possible approaches and presenting options as how best to ensure the necessary coordination
and oversight role. iii The sectoral councils should ensure that
Emphasis is put on strategy implementation and on delivering on the commitments
already made. Strategic aims are translated into clear operational targets. More focussed objectives and
milestones should be included in the strategies to establish a pathway to environmental
integration for each sector. Monitoring will also benefit from a more systematic and
focussed approach. For instance, as suggested by the United Kingdom in its contribution to
the preparation of the Spring 2004 Council, the different council formations could be asked
by the European Council to report every year on the measures taken to combat climate
change.
28
See paragraph 57 of the Presidency Conclusions to the European Council 20-21 March 2003. EN
33
EN
Strategy monitoring is put into practice further efforts need to be made on the
development and use of sector-specific decoupling objectives, milestones and integration
indicators building upon steps taken in the transport TERM, agriculture IRENA, and
energy ERM, fields, against which to measure progress towards sustainable
development.29
Strategies include updating and review mechanisms to allow for adjustments to reflect
progress and lessons learned and relevant policy developments to be taken into account in
ongoing implementation. More specifically
The General Affairs and External Relations Council whose strategy review was due in
2003 should be invited to proceed with the reviews in a timely manner. In the framework
of the review of the Development strategy planned for 2004, to adjust the strategys
objective to the Johannesburg Plan of Implementation to contribute actively to its
achievement. In addition, the review should address the need for new financial means to
facilitate the implementation of Multilateral Agreements and other key environmental
policies in developing countries. As underlined by the Environment Council 17 October 2002, environmental integration
efforts need to be extended to other sectoral policies. Given their close interlinkages
with environmental policy, the Council identified tourism, research, cohesion policy and
education as priority candidates for further environmental integration efforts at EU level. 5.2. Complementing the Cardiff process
To ensure that the Cardiff process feeds through into real improvements in environmental
quality and promotes sustainable development in the actions that it generates, it is clear that
the institutional and top-down approach of this process needs to be complemented by more
practical steps at both Community and national levels. The aim of these complementary measures would be to mobilise other actors at Community
level and in member states to support environmental integration, re-inforcing the effectiveness
of efforts made by Council formations and other institutions under of the Cardiff process, by
demonstrating that it is necessary, that it can be mutually beneficial for the sectors concerned
and the environment, and that appropriate instruments and solutions exist and can be
developed to achieve it. This implies in particular
5.2.1. At Community level
i Promoting win-win solutions
More emphasis must be placed on setting out how environmental integration can help
achieve other sectoral objectives, by identifying mutually beneficial solutions to problems. The Commission together with Member States should identify such solutions and examples of
best practice. For example, in transport, reductions in congestion, through congestion
charging or modal shift for example, may improve mobility and reduce costs to the economy,
29
This was underlined in the Presidency Conclusions to the Spring European Council 20-21 March
2003, paragraph 57. EN
34
EN
whilst improving air quality30. Improving the environmental quality of less favoured regions
can be an important factor in attracting private investment or developing tourist activity in a
region, and can therefore foster regional development with cohesion benefits. Promising areas
include the promotion of environmental technologies. ii Demonstrating that environmental integration is feasible
In parallel, there is a need to develop innovative instruments and approaches that can
actively foster environmental integration while minimising economic and social costs. Legislation, while remaining one of the main means of achieving environmental objectives,
needs to be complemented with a wider range of policy instruments to help attain those
objectives in the most cost-effective way, while taking full account of economic and social
considerations. As indicated in the EU SDS, the 6 EAP and ETAP, measures that lead to the
internalisation of environmental costs offer one of the fastest routes for environmental
integration as a successful internalisation means that price signals would reflect the real
environmental costs, thus informing the decisions of both economic operators and policy
makers in the concerned sectors. This internalisation of costs is facilitated by the use of
market-based instruments to promote environmental objectives as illustrated by the recently
adopted emissions trading scheme, or the directive on the taxation of energy products. There
are many advantages to the use of market-based instruments. As flexible mechanisms, they
allow sectoral actors to develop cost-effective approaches to reducing environmental impacts. By internalising environmental costs, they can lead to changes in behaviour. Yet, competence
in this field principally lies with the Member States and the full deployment of some market
based instruments at Community level suffers from this situation, as exemplified by the time
needed to adopt measures in the area of taxation. Other instruments that are designed to contribute to environmental integration include the
thematic strategies foreseen in the 6th EAP soils marine air quality resources waste and
recycling urban pesticides and the Strategy on environment and health. These strategies
exemplify the Commissions new integrated approach to policy-making in the environmental
field. They are being developed with the full consultation of stakeholders and the involvement
of the concerned policy sectors, so as to promote environmental integration and policy
convergence. The strategies will set out clear quantifiable targets and, where possible,
promote the use of market-based instruments.
They provide a test bed for innovative
approaches.31
The full implementation as of January 2004 of the Extended Impact Assessments, as part of
the Better regulation package and in the context of the Sustainable Development Strategy will
allow spill-overs from one policy area to another or synergies to be identified and addressed,
hence facilitating the identification and negotiation of trade-offs. Experience so far has
30
31
Indeed, the new Eurovignette proposal encourages Member States to differentiate the tolls. This new
framework, when adopted by the Council and the Parliament, holds the potential for making an
important contribution to improve the environmental performance of the transport sector, provided that
Member States make use of the possibilities offered by the directive. Development of the strategies takes place in two stages. The first stage, completed in 2003, resulted in a
Communication defining the problems to be addressed and outlining proposed solutions. The second
stage will define the objectives and the various means and policy measures, and will be completed by
2005.
Three strategies will complete the second phase in 2004 soils, pesticides and waste prevention
and recycling in parallel, an Action Plan on Environment and Health will be developed as a follow up
to the adoption of an overarching strategy on this matter in 2003. EN
35
EN
confirmed that, properly used, extended impact assessments could be a powerful instrument
for promoting environmental integration while ensuring that due account is taken of the
economic and social dimensions of sustainable development. iii Illustrating the need for environmental integration
Raising awareness of environmental problems and solutions available may sensitise the
public and decision makers to the need to further environmental integration. Information can
also be used to promote stakeholder participation for better environmental policy making and
encourage changes in behaviour. Efforts to gather and publish information and data on the state of the environment, the
pressures it is under and their sources and the distance that remains to achieve the targets set
must be strengthened and should go hand in hand with efforts to summarise this
information, notably through indicators.
5.2.2. At national level
To achieve the full potential benefits of the Cardiff process and related efforts in terms of
environmental and sustainable development improvements on the ground, efforts to improve
integration at EU level need to be backed by commitments and action at national level. For instance, stringent implementation by Member States of the directives on Environmental
Impact Assessment EIA32 and on Strategic Environmental Assessment SEA33 is key to
advancing environmental integration through projects, plans and programmes at national
level. Furthermore, a regular exchange of good integration practice at national, regional and
local level could help put integration into effect. There is a wealth of experience at all levels,
notably in the framework of local Agenda 21 initiatives, which should be pooled and made
more widely accessible. The review of the environmental dimension of national sustainable
development strategies currently under preparation will provide a first analytical tool to assess
approaches, with a view to highlighting and fostering exchange of good practice. Measures to
strengthen existing networks of environmental integration and sustainable development
practitioners and to simplify and speed up the exchange of information between practitioners
should be explored. For example, the development of an interactive Internet portal to
support access to and updates of information on relevant national, regional and local
experience could be considered. Continued political commitment to the use of such approaches at EU and national level is
needed to enable the process of environmental integration to bring further results on the
ground. 32
33
Directive 85337EEC, amended by Directive 9711EC. The EIA directive requires the environmental
impacts of range of projects from different sectors to be taken into account before a decision is taken for
the project to proceed
Directive 200142EC. A SEA allows the environmental consequences of certain plans and programmes
to be identified and assessed during the programme or plan preparation, before their adoption
EN
36
EN
6. CONCLUSION
While this stocktaking has shown the positive results of the Cardiff process, both in terms of
raising the profile of environmental integration and in terms of concrete improvements in
some sectors, it also points to a number of weaknesses in implementation. Amongst other
issues, it emphasises the need to improve the consistency of strategies across Council
formations and for greater emphasis on good practice in terms of content and implementation. It also points to a set of measures at Community and national levels to support sectoral
Councils in their efforts under the Cardiff Process to integrate environmental concerns into
their policies and to help maximise the benefits of these efforts in terms of concrete
environmental improvements. Further efforts are also needed at national level to fully
implement the decisions taken at Community level. While sustainable development involves dealing with economic, social and environmental
policies in a mutually reinforcing way, environmental integration needs increased visibility
and political support at the highest level. It should become a regular item on the agenda of the
Spring European Council. In this respect and in line with the Presidency Conclusions to the
March 2003 European Council, the European Commission will carry out an annual
stocktaking of environmental integration as a complement to the Environment Policy
Review, which will feed into the Commissions Spring Report and the Spring European
Council debate. Forthcoming opportunities to further promote environmental integration should also be
seized
The Review of the Sustainable Development Strategy planned for 2004- 2005 will
examine progress made since 2001 and identify priority actions to ensure delivery. This
exercise will enable the EU to pinpoint where environmental integration gaps lie at EU
level, hampering the EUs efforts to curb unsustainable environmental trends, and to make
concrete proposals to address them. The mid-term review of the Lisbon strategy in 2005 offers an additional opportunity to
examine how environmental integration and economic and employment growth could
increasingly be mutually supportive. The Commissions emphasis on sustainable development in its Communication on the
Unions next financial perspectives 2007 onwards34 will give an additional boost to
further environmental integration, in particular in the agricultural and regional policy.
The
adoption in 2004 of a Commission proposal for a regulation on the structural and cohesion
funds in the period post-2006, setting new guidelines, will provide an opportunity to better
integrate the environmental, economic and social pillars of sustainable development into
cohesion policy. 34
See Communication from the Commission to the European Parliament and the Council, The
Commissions legislative and work programme for 2004, COM2003645 final of 29 October 2003 p. 5. EN
37
EN
integration
Environmental
towards sustainable
development.