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Vol. 1986/00 29 
  
 
Disclaimer  
Conform ément au règlement (CEE, Euratom) n° 354/83 du Conseil du 1er février 1983 
concernant l'ouverture au public des archives historiques de la Communauté économique 
européenne et de la Com munauté européenne de l'énergie atomique (JO L 43 du 15.2.1983, 
p. 1), tel que m odifié par le règlem ent (CE, Euratom) n° 1700/2003 du 22 septem bre 2003 
(JO L 243 du 27.9.2003, p. 1), ce dossier est ouvert au public. Le cas échéant, les documents 
classifiés présents dans ce dossier ont été déclassifiés c onformément à l'article 5 dudit 
règlement. 
In accordance with Council Regulation (EEC, Euratom) No 354/83 of 1 February 1983 
concerning the opening to the public of the historical archives of the European Economic 
Comm unity and the Eur opean Atom ic Energy Com munity (OJ L 43, 15.2.1983, p. 1), as 
amended by Regulation (EC, E uratom ) No 1700/2003 of 22 September 2003 (OJ L 243, 
27.9.2003, p. 1), t his file is open to the public. Where necessary, classified documents in this 
file have been declassified in conform ity with Article 5 of the aforem entioned regulation.  
In Übereinstimm ung mit der Verordnung (EWG, Euratom) Nr. 354/83 des Rates vom 1.  
Februa r 1983 über die Freigabe der historischen Archive der Europäischen  
Wirtschaftsgem einschaft und der Europäisc hen Atom gemeinschaft (ABI. L 43 vom  15.2.1983,  
S. 1), geändert durch die Verordnung (EG, Euratom) Nr. 1700/2003 vom 22. Septem ber 2003  
(ABI. L 243 v om 27.9.2003, S. 1), ist diese Datei der Öffentlichkeit zugänglich. Soweit  
erforderlich, wurden die Verschlusssachen in dieser Datei in Übereinstimmung mit Artikel 5  
der genannten Verordnung freigegeben.  
COMMISSION OF THE EUROPEAN COMMUNITIES
Brussels, 19 February 1986
C0MC86) 76 final
C0MC86) 76 final

-  2 -
INTRODUCTION
1. Evidence is growing of a  deterioration in the natural and  
physical environment both within the Community and in m an y  
other parts of the world. Incidents linked to dangerous  
substances or plant are commonplace. The natural resources  
which are the basis of economic and social development are in  
so m e cases being misused. Public concern is mounting.  
Environmental issues are becoming m ore and m ore important  
p o litic a lly . It is therefore urgent that protection and  
improvement of the environment should b e  considered a s  a  
fundamental factor w hen decisions are taken o n  Community  
economic and social policies.
2. The Community's Third Environmental Action Programme  
adopted in 1983 - commits the Community to a  preventive
policy that integrates environmental requirements into the  
planning and execution of economic a c tiv itie s . In s o m e  areas  
l i t t l e  progress has yet been m ad e to give practical effect to  
this commitment.
3. The European Council, at its meeting o n  29/30 March 1985,  
strongly reinforced that commitment. It acknowledged that  
environmental protection policy can contribute to improved  
economic growth and job creation; and affirmed its  
determination to give this policy the dimension of a n  
essential component of the economic, ind u strial, agricultural  
and social policies implemented by the Community and b y its  
Member States. It called upon the Council and the Commission  
to m ake significant progress in Community action for the  
protection of the environment in Europe and throughout the  
world; and it designated 1987 a s  the European Year of the  
Environment. During its most recent meeting of 2/3 December  
1985 the European Council has further strengthened Community  
environment policy by agreeing to the addition of a n  
Environment Chapter to the Treaty of R om e.

- 3  -
4. A t the international level too, recognition of the  
urgency of environmental problems is high and growing. The  
Western Economic Summit in Bonn in M ay 1985 called for n e w  
approaches and strengthened international cooperation to  
solve pressing environmental problems; and for the wider  
application of the Polluter Pays Principle. Three recent O E C D  
Conferences at M in isterial level have given n ew  insights into  
thinking o n  environment policy as it should develop over the  
next decade - amongst them the recognition that continued  
environmental improvement and sustained economic growth are  
essential, interrelated  and mutually supportive policy goals.  
The concept of the "informed consent" of countries importing  
dangerous wastes w as also put forward. The necessity for  
closer cooperation o n  environmental problems w as stressed in  
the joint EC/'EFTA Minister-ial Declaration of April 1984. The  
independent World Commission o n  Environment and Development  
(whose report in 1987 - through the U N  System - w ill  
certainly have m uch to say about economic, trade and aid  
relations with the Third World and their impact o n  the  
la tte r's  escalating environmental problems) wishes to  
cooperate closely with the Community in its work o n  these  
matters; the Commission welcomes this and w ill take the  
necessary steps.
5. The logical thread that links these various n e w  
perceptions is the recognition that a  healthy economy and  
effective environmental protection are interdependent. Growth  
cannot be assured if the environment is not protected,  
because natural resources constitute both the basis for and  
the lim its of economic development. Environmental protection  
is not therefore an  option; the integration of its  
requirements into overall economic planning is a n  
imperative - and an economic imperative at that. In the last  
analysis, s tric t environmental protection can b e regarded as  
an  essential component of a  properly conceived long-term  
economic policy.

- 4  -
6. A  re-examination of p rio ritie s  is n o w  essential to take  
account of these n e w  perceptions, and of the conclusions of  
the European Council. This w ill be undertaken in the course  
of the preparation of proposals for a  Fourth Community  
Environmental Action Programme to be adopted at the beginning  
of the European Year of the Environment.
7. Meanwhile urgent action is necessary o n  a  number of  
matters in order to secure the substantial progress for which  
the European Council has called. This communication sets out  
the Commission's views as to these "new directions" in  
environmental policy that n o w  need to be followed and invites  
the Council to take note of the p rio ritie s  and orientations  
set out below.
C O S T S  A N D  BENEFITS O F  ENVIRONM ENT POLICY
8. The protection of the environment and the development of  
the economy are frequently, though mistakenly, regarded as  
competing goals. This is often due to d iffic u lty  in measuring  
the economic benefits of environment policy while the costs  
appear more readily apparent. For this reason the Commission  
w ill continue to attach importance to the establishment a s  
far as possible of adequate cost/benefit analysis as a  basis  
for environmental proposals.
9. The economic effects of environment policy can b e  
appreciated in d ifferen t ways :  -
the need to remedy environmental damage caused by past  
industrial strategies m a y  create n ew  technologies (water  
p u rificatio n , waste management and recycling) or provide  
n ew  demand for existing industries;

-  5 -
- the growing consumer demand for improved environmental
standards is creating markets for new  goods and services
(environmentally friendly cars, housing improvements, 
touri sm).
10. The com petitivity of European industry o n  world markets
in the 1990's depends partly o n  its products reaching
environmental standards at least as high as those of our main  
competitors. If such progress is not made, then European
producers w ill lose market share not only o n  international  
markets, but also o n  the domestic market. Moreover it needs  
to be recognised that pollution represents a  waste of  
resources and is often linked with obsolete technologies;
modern technologies by contrast tend to be at one and the  
sam e time more e ffic ie n t and competitive and less polluting.  
O n  both these counts the imposition of ambitious  
environmental norms in the remainder of the 1980's which w ill  
stimulate technological innovation in order to meet them w ill  
protect markets and jobs in the long-term.
11. The economic gains from the pursuit of stric t
environmental requirements m ay not be without cost in the  
short-term and m ay therefore pose short-term problems in  
terms of financing and com petitivity. The rate of return o n  
so m e investments w ill be such that there w ill be short-term  
gain; in cases where the economic benefits can only b e  
achieved in the longer term, there m ay s t i l l  be sound  
environmental and economic reasons w hy the investment should  
be carried out. The O E C D  Conference o n  Environment and  
Economics in June 1984 concluded that: "The benefits
generated by environmental measures (including the damage  
costs avoided) have generally been greater than their costs".
12. The  
drawing 
effectsCommission is aware of the d iffic u ltie s  involved in  
u p  a  balance sheet of the positive and negative  
o n  employment of environment policies. It is clear

-  6 -
that protection of the environment in its e lf w ill reduce the  
social costs of deteriorating natural resources and hence  
contribute to economic growth and employment - and thus to
the competitiveness of industry - in the long run. However  
the introduction of n ew  environmental standards may, in the  
short term, have adverse effects o n  the competitiveness of  
certain individual enterprises that have to comply with them.  
This calls for close attention not only to the type and  
levels of environmental standards to be introduced but  
equally important to the timescale of implementation. The  
Commission aims in its policy o n  the environment to achieve  
the m axim um  possible effects o n  growth and employment by
assuring that the objectives and means are m ad e clear to
industry and that enterprises are allowed a  reasonable time
to adjust to the n e w  standards. A  strengthened environment  
policy w ill have positive effects o n  job creation through  
environmental infrastructure and investment and through the  
manufacture of n e w  products that are d irectly related to the  
improvement of environmental quality. Other effects are less  
certain though it is clear that som e environment programmes,  
for example those designed to tackle inner city decay, to  
re -u tiliz e  derelict land or to repair landscape damage in  
areas of natural beauty, d o  lead to short-term employment  
gains and w ill also, in urban areas at least, encourage n e w  
industrial investment by creating attractive business  
environments. The Commission w ill shortly propose a
A
substantial 5-year programme of "demonstration projects"  
designed to explore all p o ssib ilitie s of environmental
.The programme w ill consist of specific projects in all  
Member States to demonstrate h o w  environmental actions and  
the implementation of environmental policies can generate  
jobs

- 7  -
policies generating jobs; and to create a  large body of  
experience and information o n  which industry and a ll Member  
States can draw in the future.
ENVIRONMENTAL REQUIREMENTS IN E C O N O M IC  POLICY
13. The Community's Third Environmental Action Programme  
underlines that the prevention of environmental damage is  
cheaper than the cure. T o  this end, environmental  
requirements must be integrated into the planning and  
execution of policy in a ll economic sectors. This key element  
in Community policy has n o w  been strongly underlined by the  
European Council's determination to m ake environmental  
protection policy an  essential component of the economic,  
in d u stria l, agricultu ral and social policies implemented by  
the Community and by its Member States. Practical steps to  
give effect to th is , including the rapid implementation of  
the Environmental Impact Assessment procedure agreed by the  
Council, is therefore essential. A s  a  firs t step the  
Commission is taking the necessary decisions to this effect  
in relation to the Community's o w n  policies and to the Funds  
which it administers.
14. The Polluter Pays Principle - under which those  
responsible for pollution must bear the costs of preventive  
and remedial action and are thus encouraged to use less  
environmentally harmful production techniques - is of key  
importance in ensuring that environmentally correct price and  
market signals are given. It should be developed and applied  
more widely. In p a ra lle l, the greater use of economic  
instruments based o n  market principles must be encouraged.  
Overall the aim must b e to develop a  combination of  
leg islative and economic instruments which w ill together  
encourage the free operation of the market to achieve  
environmentally necessary results. T o  this end the Commission

-  8 -
w ill m ake proposals regarding the use of appropriate economic  
instruments - which could b e p articu larly important in  
tackling the problem of diffuse sources of pollution.
15. However, even though the Polluter Pays Principle must b e
the general rule, it needs also to b e recognised that cases  
can arise in which its stric t application m a y  delay (or even  
m ake impossible) necessary environmental improvements because  
of their financial impact o n  existing enterprises; in  
addition, public authorities in certain areas of the  
Community already face economic problems - applying Community  
measures, especially in relation to the in stallatio n  of basic  
environmental infrastructure. In order to overcome these  
d iffic u ltie s  the Commission w ill m ake a  proposal for a  
Community programme, within the framework of the Regional
Fund, which w ill have as its objective to assist  
disadvantaged areas of the Community to implement Community  
environment Directives - thus promoting both socio-economi ç , -  
development in such areas and Community environment policy.
16. T o  encourage the free market to operate in an  
environmentally rational w ay the Community must also increase  
awareness of the need for high environmental standards.  
Considerable effo rts w ill be needed to influence attitudes.  
This is the central purpose of the European Year of the  
Environment in 1987, designated by the European Council. The  
Commission has already m ade preliminary proposals regarding  
the organisation of the Year and w ill rapidly m ove o n  to the  
detailed planning of the necessary arrangements. A  
substantial budget w ill be necessary.
17. In the leg islative fie ld  it is not sufficient merèly to  
adopt n e w  measures. Those already adopted must b e effectively  
implemented and enforced. Moreover the Commission must  
examine the practical results o n  the ground of these measures  
and the extent to which they have led to environmental

- 9  -
improvement. The Commission w ill give increased attention to  
these aspects of environment policy and w ill ensure the wide  
public a v a ila b ility  of information o n  the results. In this  
context the Community's information system o n  environmental  
data (CORINE), which is n o w  developing rapidly and needs fu ll  
support from Member States, and periodic State of the  
Environment Reports which can demonstrate trends, w ill play  
an  important part; the next such Report w ill b e published  
this year.
PRESSING ENVIRONMENTAL POLICY P R O B L E M S
18. A  number of pressing environmental problems face the  
Community at present. Urgent action should b e taken to deal  
with them.
19. Atmospheric Pollution resulting from the combustion of  
fossil fuels in power stations, motor vehicles and central  
heating plants causes costly damage to forests, lakes,  
buildings and crops - damage that is plainly increasing all  
the time and w ill continue to grow unless action is taken.  
Control costs are significant but not insupportable. The  
Commission is proposing a  balanced policy aimed at achieving  
significant reductions in emissions from a ll major sources a s  
quickly as possible and at a  reasonable cost. The  
transboundary character of atmospheric pollution makes  
cooperation with other European countries necessary, both  
with E F T A  countries and through the Economic Commission of  
Europe. In addition to the proposals already m ad e to reduce  
emissions from motor vehicles and large combustion  
in s ta lla tio n s , to reduce the sulphur content of gas-oil and  
to control the combustion of waste o ils , the Commission w ill  
m ake a  series of further proposals as soon as possible, all  
concerned to reduce emissions or to establish acceptable air  
quality standards. These w ill include proposals relating to

-  1 0 -
emissions from vehicles over 3.5 tons, particulate emissions  
from diesel vehicles, speed lim its and the sulphur content of  
heavy fuel oil and coal.
20. Concern is growing in m any Member States over pollution  
of the sea - the ultim ate sink of most polluting emissions,  
whether they are i n it ia ll y  discharged to water, to air or to  
land. Major reductions in marine pollution are essential to  
avoid the risk of overtaxing the sea's absorptive capacity.  
The situation is c r itic a l for the Mediterranean and the  
ecologically important W adden Sea area of the North Sea. It  
is also necessary to avoid inadvertent releases of pollutants  
into the sea and the risk of recircu latio n . The Commission  
has recently m ade a  proposal regarding the dumping of wastes  
at sea and w ill shortly m ake further proposals concerning  
Community p articipation in the London Dumping Convention. The  
Commission intends to take an  increasingly active part in the  
work of international bodies concerned with marine pollution.  
It w ill take early steps to develop an environmental  
protection strategy and action plan for the Mediterranean  
(MEDSPA) as already announced in a  Communication to the  
Council; and to extend the Community information system  
concerned with sp ills at sea from hydrocarbons to cover also  
other dangerous substances, in accordance with the recent  
Council decision o n  this matter. Finally the Commission urges  
strong Community support for actions to protect the  
Mediterranean within the framework of the recently adopted  
Genoa Declaration for the next decade of the Mediterranean  
Action Programme; and for actions to protect the North Sea in  
the context of preparations for the Second North Sea  
Conference which w ill be an  important event during the  
European Year of the Environment.
21. Concern over the  
dangerous chemicals.
this field  accidents,international movement and production of  
wastes and plant is growing rapidly. In  
though happily rare, can b e devastating

-  1 1  -
(Seveso and Bhopal). In addition to the continuing steady  
implementation of existing Community legislation o n  the  
c lassifica tio n , packaging and labelling of dangerous chemical  
substances and o n  the transfrontier movement of toxic and  
dangerous wastes, urgent action is needed to develop at  
international level adequate control measures and  
n o tificatio n  and authorisation procedures, which w ill provide  
a  high degree of security without hampering legitimate  
manufacture and trade in dangerous products. O E C D  and the U N  
are both involved. There is a  strong case for the Community  
to promote the rapid development of world-wide codes of  
practice to supplement the specific legislative measures  
needed to cover so m e aspects of these matters and the  
Commission w ill take in itia tiv e s  to this end. In addition the  
Commission w ill propose legislation covering the export and  
import of p artic u la rly dangerous substances and at the sam e  
time parallel action at international level.
22. The Community's waste management industries employ  
3  m illion people and handle over 2000 m illion tonnes of  
wastes each year. The quantity is growing steadily. Three  
quarters of a ll waste is buried; yet 8 0 %  of it could b e  
recycled for raw materials or energy and improved production  
processes, in both industry and agriculture, could avoid part  
of the present arisings altogether. N e w  technologies must b e  
stimulated to these ends and the Commission has recently  
decided upon the fir s t series of support actions for clean  
technologies under the A C E  Regulation adopted by the Council  
in 1984. Action to encourage the development of n e w  
technologies, coupled with the creation of the right market  
conditions for a  more rational approach to the management of  
waste, would lead to economic and employment gains and a  
considerable reduction in import dependence, as well as to a  
reduction in pollution risks. The Commission w ill shortly  
propose an  overall strategy for the more rational management

-  12  -
of wastes throughout the Community which w ill include  
specific proposals for leg islative actions that seem  
desirable at Community Level.
23. Urban areas both in disadvantaged regions as in regions  
of industrial decline are increasingly faced with problems of  
environmental degradation. Economic decline and the  
particular d iffic u ltie s  experienced by these areas are the  
factors which contribute to a  degradation in living and  
working conditions of its inhabitants. Overcoming these  
trends therefore has become an  essential factor, not only in  
the improvement of the quality of lif e , but also in lim iting  
unemployment in urban areas. The Commission has already  
undertaken an  important study o n  regional policy and urban  
decline; and has worked o n  the reh ab ilitatio n  of industrial  
and urban areas through various Regional Fund measures. The  
Commission n o w  intends to examine the possiblity of a  
Regional Fund programme to assist the reconversion of areas  
affected by urban and industrial decline. It w ill also  
prepare a  report to submit to the Council, which w ill examine  
h o w  the public and private sectors and other interests can  
work together towards the reh ab ilitatio n  of certain urban  
areas and thus contribute to sustain their economic  
development. The programme of "demonstration projects"  
referred to in para. 12 above, o n  the job-creation potential  
of environmental measures, w ill undoubtedly contribute  
sig n ifican tly in this regard. A n d  urban reh ab ilitatio n  w ill  
constitute an  important theme for the European Year of the  
Envi ronment.
24. Linking a  number of the above problem areas - and likely  
to b e  of growing importance in the future - is the question  
of soil protectio n.  Controls over discharges to both air and  
water and waste disposal practices (especially s o  far as  
concerns la n d fill) all d irectly affect the soil. The  
maintenance of soil quality is of key importance both for

- 13 -
agriculture and for m any aspects of nature conservation,  
which is a  continuing high p rio rity  area of Community  
environment policy. The Commission's proposal for a  Directive  
concerned the use of sewage sludge in agriculture - which is  
s t i l l  under discussion by the Council - is of importance in  
relation to both waste management policy and soil protection.  
Certain agricultu ral practices d irectly affect the soil (and  
the environment more widely); the measures envisaged in this  
connection in the review of the C o m m o n  Agricultural Policy  
and mentioned in para. 27 below would certainly contribute to  
the protection of the soil. The Commission w ill put forward  
appropriate proposals as soon as possible; and more  
generally, has it in mind to treat soil protection as a n  
important theme of the Community's Fourth Environmental  
Action Programme.
T H E  INTEGRATION O F  ENVIRONMENTAL REQUIREM ENTS INTO O T H E R  
POLICIES
25. The preventive nature of Community environment policy  
requires the integration of the requirements of environmental  
protection policy as an  essential component of the other  
policies of the Community and of its Member States. However  
certain areas are of especial p rio rity  at the present time.
26. Biotechnology offers great potential both a s  a  major  
future growth industry in the Community and as a  potent m eans  
of dealing with m any environmental problems especially those  
related to waste streams and waste management. Yet it m a y  
carry serious environmental risks. The Community's preventive  
approach to environmental problems requires early action to  
create an  appropriate regulatory framework which can both  
minimise these risks and give the industry a  sure basis o n  
which to develop. The Commission w ill m ake appropriate  
proposals in the near future and w ill consider the need for  
p arallel in itia tiv e s  at international level.

- 14 -
27. Europe's landscape has been formed and shaped by  
agri culture over the centuries. However,. the development b y  
modern farming practices poses questions which require a n  
urgent response. Inappropriate land use damages landscape  
quality and areas of special interest for conservation;  
misuse of chemicals and the uncontrolled disposal of  
agricultural wastes pollute water supplies and damage  
w ild life . The co m m o n  agricultu ral policy must d o  more to  
create a  framework within which agriculture w ill respect the  
environment and conserve the priceless heritage of landscape  
and species. A n  increase in the forest area of the Community  
needs to be considered and can contribute to environmental  
protection. The Commission's Green Paper o n  "Perspectives for  
the C o m m o n  A gricultural Policy" indicated the Commission's  
view o n  h o w  to balance agricultu ral development with the  
sometimes conflicting needs of conserving the natural  
environment and envisaged a  series of actions related in  
particular to the use of agrochemicals, the treatment of  
agricultu ral wastes and the conservation of species, habitats  
and landscapes. The Commission has reiterated its views o n  
these matters in its recent presentation of its conclusions  
o n  the C A P  review to the Council.
28. The completion of the i  nterna l m a  r  ket by 1992 is a n  
established Community commitment and one of the most  
important challenges facing the Community. The achievement of  
this goal requires the active support and assistance of all  
other Community policies. In the fie ld  of environment policy  
the main potential impact of the completion of the internal  
market w ill be in relation to product standards. In important  
cases, national standards could d iffe r widely, p articu larly  
o n  the protection of the environment. It is essential in that  
case to reach in advance and at Community level, any  
harmonisation of these standards which m a y  be necessary for  
environmental reasons. The European Council of 2/3 December  
1985 laid dow n that the approximation of laws o n

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environmental protection w ill be based o n  a  high level of  
protection. The Commission w ill m ake appropriate proposals  
during the period between n o w  and 1992.
29. Energy production is heavily dependent o n  the use of  
fossil fuels and thus energy policy is inevitably concerned  
by atmospheric pollution issues. Environmental requirements  
in turn affect energy costs and the competitive position as  
between d ifferent energy sources. The balanced pursuit of  
environmental and energy policy objectives is therefore of  
special importance, as stated in the Commission's recent  
Communication, o n  n ew  Community energy objectives (C0MC85)  
245). Energy conservation and altern ative non-fossil energy  
sources, including nuclear, w ill help improve air quality.  
Technologies exist that can achieve significant reductions in  
polluting emissions from fossil fuel power stations at  
reasonable costs. In the future d iffic u lt problems could  
arise from the use of fossil fuels if the build-up of  
atmospheric carbon dioxide levels and the 'Greenhouse effect'  
are shown (as certain scientists fear) to have serious  
impacts o n  climate and agricultural productivity world-wide.  
In case further s c ie n tific  research should confirm the  
likelihood of such impacts, the Community should already b e  
thinking about possible responses and alternative energy  
strategies. The Commission w ill continue its studies.in this  
context.
30. The major environmental problems of the Third World -  
d e s e rtific a tio n , tropical deforestation, the explosive growth  
of c itie s , loss of w ild life  and genetic diversity - are  
amongst the world's most daunting, and potentially dangerous,  
environmental problems. The Community's development policy  
under L O M E  I I I  w ill seek to combat the growing deterioration  
of natural resources by the implementation of action  
programmes which take account of environmental factors, more  
sp ecifically than hitherto. Particular attention has already

- 16 -
been given to the problems of desertificatio n  and of  
reafforestation in Africa, the solution of which is a  sine  
qua non in certain countries for long-term, sustainable,  
agricultural and rural development (see C0M(86) 16 fin al of
22 January 1986). But because of the scale of the problem,  
Community effo rt alone is not enough. The resolution of Third  
World degradation problems w ill need increasingly close  
international cooperation; larger and more e ffic ie n tly  used  
financial inputs; and major changes of attitu d e. In this  
context a  reexamination of the trading and pricing policies  
of the developed world m a y  b e necessary. These issues w ill b e  
at the centre of the work of the World Commission o n  
Environment and Development. The Commission intends to study  
these matters as a  contribution to the work of the World  
Commission. A  meeting in Brussels between the Community as a  
whole and the World Commission to discuss its draft report  
w ill b e an  important event in the early part of the European  
Year of the Environment.
ORIENTATIONS F O R  C O M M UN ITY ENVIRONMENTAL POLICY
31. In conclusion, the Commission considers that the
following orientations should guide the Community's immediate  
response to environmental challenges and to the requests of  
the European Council:
- S trict environment policy is essential to and is fu lly  
compatible with long-term economic growth. It can  
contribute to job-creation. It must b e considered as a  
fundamental factor for economic and social policy of both  
the Community and the Member States.
- Prevention should remain the key objective of environment  
policy. T o  this end, environmental requirements should b e  
integrated into legislation and decision-making and there  
should b e a  rapid implementation of the Environment Impact

- 17 -
Assessment Directive for major projects; and m eans  
developed to ensure that environmental requirements are  
integrated also into the formulation of policies, plans and  
programmes;
- Practical steps to ensure this integration o n  a  day to day  
basis, both at the level of Community policies and in each  
Member State, should be taken urgently;
- The Polluter Pays Principle is of key importance in  
ensuring that environmentally correct price and market  
signals are given. It should b e developed and applied more  
widely;
- The implementation of environmental policy in disadvantaged  
regions and declining industrial areas of the Community  
should nonetheless be assisted;
- Environment problems can n o  longer b e addressed adequately  
o n  a  sectoral basis alone; a  multi-media approach must  
increasingly be developed s o  as to avoid the transfer of  
pollution between environmental sectors (water, a ir, e tc .);
- The Commission should give increased attention to the  
effective implementation and enforcement of environment  
policy; and to its practical results o n  the ground;
- The European Year of the Environment should b e seen as a  
major opportunity to raise awareness of the importance of  
environmental issues and to change attitudes.
3  2. In order to respond to the European Council's request rto
thè Commission and the Council to take rapid action to tackle
the most pressing environmental problems, the Commission
takes the view that early decisions are necessary to:

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substantially reduce pollution of the atmosphere from all  
major sources;
develop and support actions to reduce polluting emissions 
to the Sea, especially the North Sea and the Mediterranean;
promote world-wide codes of practice related to dangerous  
chemicals, waste and plants;
adopt appropriate environmental regulations for
biotechnology;
create a  framework within which agriculture w ill respect  
the environment and conserve the priceless heritage of  
landscapes and species;
support the internal market by completing any harmonisation  
of product standards at Community level that m a y  b e  
necessary for environmental reasons by 1992;
tackle problems of areas faced with environmental  
deterioration;
launch a  substantial programme  
to explore the job-creating  
policies;of "demonstration projects"  
potential of environmental
assist disadvantaged areas of  
environmental infrastructure  
environmental directives;the Community to instai basic  
and to implement Community
strengthen the Community's international  
environmental problems, especially in relation
World development and cooperation at the Europeanrole  
to T h  
Level;o n 
i  rd

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- launch and support the European Year of the Environment o n  
a  substantial scale.
33. The Commission w ill be guided, inter a lia , by the above  
considerations in preparing its proposals for the Community's  
Fourth Environmental Action Programme. Meanwhile it invites  
the Council to take note of the general orientations of this  
paper and of the Commission's intention to m ake appropriate  
detailed proposals as rapidly as resources permit.