4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/27
OpinionontheproposalforaResolutionoftheCounciloftheEuropeanCommunitieson
aCommunityprogrammeofpolicyandactioninrelationtotheenvironmentandsustainable
development
(92/C287/09)
On11May1992theCouncildecidedtoconsulttheEconomicandSocialCommittee,
underArticleDOSoftheTreatyestablishingtheEuropeanEconomicCommunity,onthe
abovementioned proposal.
TheSectionforProtectionoftheEnvironment ,PublicHealthandConsumerAffairs,which
wasresponsibleforpreparingtheCommittee'sworkonthesubject,adopteditsOpinionon
2June1992.TheRapporteurwasMrBoisseree.
Atits298thPlenarySession(meetingof1July1992),theEconomicandSocialCommittee
adoptedthefollowingOpinionbyalargemajority,withsixabstentions.
INTRODUCTION
TheCommitteewelcomesthesignalgivenbythe
CouncilofMinisterson28May1992withitscon­
clusionsontheenvironmental policyactionpro­
gramme.TheCommitteeispleasedthattheCouncil
gavethediscussionoftheprogrammeprioritytoenable
ittobeginon1January1993.Withitscommitment
topursueapolicyofenvironmentally acceptableand
sustainabledevelopment ,theEuropeanCommunity
madeamajorcontributiontotheRiodeJaneiro
Environment Summit.
TheCommitteeisfollowingtheCouncil'slinewithits
timelyOpinionontheoutlinesoftheprogrammeand
thecontentoftheproposedResolution.oftheprogramme,p.8]aswellasintheuse,
consumptionanddisposalofproducts;
c)thesharedresponsibilityofall'actors'(economic
forces,government,publicauthoritiesatalllevels,
thegeneralpublic);
d)broadeningoftherangeofenvironment-policy
instruments,particularlybyincludingeconomicand
taxschemesandincentives;
e)riskmanagementandassessmentwithregardto
thepolicyonchemicals,biotechnology andnew
technological developments (includingnuclear
safety);
—emergencyaidandcivildefence,includingthe
environmental impactofnaturaldisastersand
armedconflict;
f)theroleoftheECinworldwideenvironmentpolicy,
particularlyitspositionattheWorldEnvironment
Conference (UNCED)inRiodeJaneiroinJune
1992.
1.2.2.Unlikeearlierprogrammeswhereactivities
werefocusedonindividualenvironmental constituents
(e.g.air,water),futureactionwillbeconcentrated
withinfivekeyeconomicsectors:industry,energy,
transport,agricultureandtourism.
1.2.3.Asecondapproachinvolvesthefocussingof
attentiononselectedenvironmental themesandthe
targetsassociatedtherewith.Asfarasthethemesare
concerned,emphasisisfrequentlyconfinedtoqualitat­
iveaspects.Sometargetsareneverthelesssetforthe
year2000.
1.2.4.TheCommission seekstotakeintoaccount
trendswhichdidnotexistwhenpreviousprogrammes
ontheenvironmentwerebeingdrawup,e.g.:
—challengesarisingasaresultoftheSingleMarket,
withtheparticularandadditionalproblemsitposes
fortheenvironment (cf.theTaskForceReporton
theEnvironmentandtheSingleMarket);
—challengesemergingasaresultofpoliticaland
economicchangesinEasternEurope;1.Commentsonthecontentoftheprogramme
1.1.AlthoughtheCommissionmentionsthefour
previousActionProgrammesontheEnvironment (the
lastofwhichisduetoexpireattheendof1992),it
doesnotregardtheproposednewprogrammeasa
continuationofearlierprogrammesintermsofoverall
conception .Thelatestprogrammeisratherseenasa
newdepartureaimedatprovidingacomprehensive
surveyoftheCommunity'senvironmental objectives
andembracingallareasofresponsibility ;italsoexam­
ines'theCommunity'sroleinthewiderinternational
arena'.TheCommissionnotesthatpreviousmeasures
havefailedtomaintainthe'qualityoftheenvironment'
bothwithinandoutsidetheCommunity [cf.point1(i)
oftheprogramme,p.3]andthereforeconsidersthata
fundamentalchangeofdirectionisnecessary.
1.2.Basicprinciplesunderlyingtheprogramme
1.2.1.TheCommissionmakesitclearthatthepro­
posedprogrammeisbasedonthefollowingprinciples:
a)thedesiretoachievesustainableandenvironmen­
tally-friendlydevelopmentintheCommunity ;
b)thepreventionofenvironmental damagebyinteg­
ratingenvironmental protectionintheproduction
process[precautionary approach,cf.point31(iv)

NoC287/28 OfficialJournaloftheEuropeanCommunities 4.11.92
2.1.5.TheCommitteeintendstosupporttheactivi­
tiesofthesocio-economic interestgroupsrepresented
onitwithaviewtohelpingthemfulfiltheirrolein
implementingtheprogramme .
2.2.Notwithstanding thisgeneralendorsement,the
Committeewouldmakethefollowingcriticismsofthe
programme .
2.2.1.Anyassessmentoftheprogrammeisinevitably
incompletebecause:
'—TheStateoftheEnvironmentReport,submitted
withtheprogramme,couldnotbefullytakeninto
considerationinthisOpinion.
—Theprogressreportontheimplementation ofthe
measurestobetakeninpursuanceofearlierpro­
grammes,includingthosetakenundertheFourth
ActionProgrammeontheEnvironment,isnotyet
available.
—Importantconcretemeasurestobetakenunderthe
programmewillonlybeunveiledatalaterdate
(CommissionCommunications in1992andafter).
TheCommitteeexpectstobegiventheopportunity
toexpressitsviewsontheseCommunications .
2.2.2.Theprogrammeprimarilycomprisesstrategies
andconceptswhichsetqualitativetargets.
2.2.3.TheactualActionProgramme (withquantitat­
ivetargets,time-framesandperhapsevencostesti­
mates)hasbeenpushedintothebackground .Guide­
linesforconcreteactionplanscanneverthelessbe
extrapolatedfromtheTablescontainedinthepro­
gramme.
2.2.4.Theprogrammemakesnomentionoftheneed
foracomprehensive cost-benefitanalysis,asenvisaged
inArticle130RofthefutureECTreatyagreedin
Maastricht,assumingthatsuchananalysisiffeasible
(cf.theCommittee'sOpiniononEnvironmentPolicy
andtheSingleEuropeanMarket)(!).Acost-benefit
analysisisneverthelessimportantfor(a)assessing
whethertheimplementation ofprojectsandactionsis
possible,(b)settingprioritiesand(c)calculatingthe
resourcesrequired.
2.3.ThereportorderedbytheCommissiononthe
EnvironmentandtheSingleMarket('TaskForce
Report')hasbeentakenintoconsiderationinthepro­
grammewhendiscussingstrategicconsequences .Quite
alargenumberoffactsandfiguresfromtheTask
Forcereporthaveneverthelessbeenomittedfromthe
proposednewprogramme .
2.4.WithitsnewprogrammetheCommissionwould
liketoreversetrendsbyaimingforsustainableand
environmentally-friendly developmentinallareasof
publicandprivatelife.Ifthisstatementofintentisto
betakenseriously,itpresupposesanimprovementin
thequalityofeffortstoachievethetargetslaiddown
intheprogramme (intermsofcontentandspeed).
2.5.Asstatedunderpoint2.2,theprogrammelays
downonlyafewconcreteobjectivesforindividual—theimplementation ofenvironmental provisionsin
theMaastrichtTreaty,includingtheearmarkingof
fundsfromtheCohesionFundtosolvecertain
environmental problems(ArticleDOS,§5ofthe
futureECTreatyagreedinMaastricht);
—thequintessential roleoftheCommunityin
developingandpushingthroughenvironmental
strategiesinresponsetoglobalenvironmentalprob­
lems.
1.3.Improvements intheimplementation and
enforcementofEurope'senvironmentpolicyaretobe
achievedthrough:
—theestablishment ofaConsultativeForum,com­
prisingrepresentatives ofvarioussocio-economic
interestgroups,publicauthoritiesandtheCom­
mission'sDGsconcerned;
—thesetting-upofaEuropeanImplementation Net­
work(anenvironmental protectionnetworkcom­
prisingrepresentatives ofnationalauthoritiesand
oftheCommissioninvolvedinthepractical
implementation ofCommunitymeasures);
—theestablishmentofanEnvironmentPolicyReview
Group,comprisinghigh-levelrepresentatives ofthe
CommissionandtheMemberStates.
2.Generalcomments
2.1.TheCommitteeapprovestheconceptsand
thrustofthe'programmeofpolicyandactionin
relationtotheenvironmentandsustainabledevelop­
ment,'aswellastheCouncil'sdraftresolutionrelating
thereto.
2.1.1.TheCommitteeconsidersthattheprogramme
offershighlyappropriateenvironmental policyguide­
linesfortheperioduptoandbeyondtheyear2000.It
isparticularlypleasedthatalltheproblemsinvolved
havebeencomprehensively treated.
2.1.2.However,unlessthepoliticalauthoritiesset
prioritiesatCommunityandMemberStatelevel,it
willproveimpossibletoturnthisECenvironment
programmeintoreality.TheCommitteewouldthere­
forebepleasediftheCouncilofMinistersmadea
detailedstudyoftheprogrammeandensuredthatthe
contentoftheprogrammeanditsimplementation were
thesubjectofin-depthconsultationsbetweenGovern­
ments,theEuropeanParliament,theCommissionand
socio-economic groups.
2.1.3.TheCommitteeregretsthatthelatearrivalof
theprogrammemeansthatitwasnotpossibletocom­
pleteconsultationsamongCommunitybodiesbefore
theWorldEnvironmentConference (UNCED)heldin
RiodeJaneiroinJune1992.
2.1.4.TheCommitteeconsidersitimportantthat
theprogrammeshouldassoonaspossibleformthe
basisofaproposalforanenvironmentpolicycovering
theEuropeanEconomicArea(EEA)(therelevant
Treatyhavingrecentlybeensigned)andthatEFTA
countriesshouldbebroughtintodiscussionsofthe
programme . f1)OJNoC332,31.12.1990,p.107.

4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/29
needstobecarefullyandcriticallyreviewedtoensure
compatibilitywiththepolluter-paysprinciple.The
Committeeconsidersthatthepolluter-paysprinciple
mustremainapillarofEurope'senvironmentpolicy.
TheprovisionofCommunityfundsforinfrastructure
projectswhichwillprotecttheenvironmentalsoneeds
encouragement .
2.6.5.Thenewinstitutionalarrangementsprovided
forundertheMaastrichtTreatyprovidefor:
—changesinthe'Environmental Articles'oftheEC
Treaty,
—theappointmentofanombudsman .
Thesenewarrangements maywellleadtofurther
advancementoftheCommunity'senvironmentpolicy.
Relevantpracticalexperiencesshouldthereforebetak­
enintoaccountwhenbringinguptodatethepresent
ActionProgramme .
2.6.6.SincetheMaastrichtagreementprovidesfora
revisionoftheTreatyin1996,thereviewofthenew
environmentprogrammein1995shouldalsoinclude
anexaminationofwhetherTreatyprovisionson
environmental policyneedtobesupplemented or
improved.sectorsorforenvironmental constituents .Whatis
neededisamoreprogressive,forward-looking
approach.Clearinformationaboutobjectives(both
contentandtimescales)isnecessarysothatthose
responsibleforimplementation havetimetoprepare
theplannedmeasures.Evenifthepartiesresponsible
caninmanycasesbeentrustedwiththetaskofselecting
themethodsforimplementingenvironmental measures,
therecanbenoflexibilityaboutactualobjectivesand
time-frames .
2.6.TheframeworkfortheprogrammeistheMaas­
trichtupdateoftheECTreaty.Thissaid,thepro­
grammemakesonlyfleetingreferencetotheenviron­
mentalimportanceoftheobjectiveswhichtheMaas­
trichtTreatylaysdownintheinterestsofultimately
achievingaEuropean'Environmental Union'.
2.6.1.The'ambitiousobjectives'ofMaastrichtalso
includeanew'levelofaction'forenvironmental policy.
TheCommitteeregretshoweverthattheprogramme
doesnottakeupthequestionofthefundsrequiredto
implementthispartoftheMaastrichtprogramme .The
fundingavailableundertheCohesionFund(Article
130DofthefutureECTreatyagreedinMaastricht)
willbeconfinedtoasmallnumberofcountriesand
onlyafixedproportionoftheCohesionFundislikely
tobereservedforenvironmental protectionmeasures.
Thisisparticularlysoinrespectof:
—thefinancingofmeasurestoimplementthatpartof
theprogrammeconcernedwiththegeneralpublic
(information,education,training);
—thefinancingofmonitoringnetworksandthetech­
nicalmeansconnectedtherewith;
—thefundsneededtoenableactorsparticipatingin
theprogrammetocarryouttheirdutiesadequately
(cf.below).
2.6.2.HeretheCommitteewouldrefertoitsOwn­
initiativeOpiniononEnvironmental Policy,aFunda­
mentalAspectofEconomicandSocialDevelopment (l),
inwhichithasalreadymadeanurgentpleaforfunding.
TheneedforCommunityfundshasinthemeantime
increasedsinceenvironments insomeareasoftheCom­
munity,e.g.theformerterritoriesoftheGDR,needto
becleanedup—somethingwhichcannotbedone
withoutappropriatecontributions fromtheCom­
munity.
2.6.3.TheCommitteeurgesthatallmeasuressup­
portedbytheCohesionFundshouldsatisfytherequire­
mentsoftheenvironmentprogramme,therebymaking
acontributiontosustainableandenvironmentally-fri ­
endlydevelopment .
2.6.4.TheCommitteeneverthelessgenerallytakes
theviewthattheearmarkingofCommunityfundsfor
theimplementation ofanenvironmental policy(funds
whichwillalsopreventdistortionsofcompetition )3.Subsidiarityandsharedresponsibility
3.1.TheCommissionquiterightlystatesthatthe
Communitywilltakeactionundertheprogrammein
accordancewiththeprincipleofsubsidiarity (Article3B
oftheproposednewECTreatyagreedatMaastricht).
3.2.Theprincipleofthesharedresponsibilityofall
actorsatalllevelsisfullyacceptable;nevertheless,
thereisadangerofblurringthedividinglinebetween
delegatedpowersandresponsibilities .Sharedresponsi­
bilityalsocallsforcleardecision-making levelseven
thoughtheactivitiesoffirms,citizens(consumersand
workers)andpoliticians (administration )areinter­
related.Nordoessharedresponsibilitymeanthatthere
willbe(a)noconflictingobjectivesand(b)noneedto
balanceinterestsinindividualcases.
3.3.IntheviewoftheCommitteetheactorsengaged
inenvironmental policyalsoincludeworkers'organiza­
tions,mainlybecauseoftheinterrelationship between
environmentalprotectionandtheworkingenvironment
butalsobecauseofthefactthatprovisionsgoverning
workers'rightsofparticipationvaryfromoneMember
Statetoanother,eveninrespectofenvironmentalpolicy
atmicro-economic level.
3.4.Sharedresponsibilityimpliesthatenvironment
policyactorsareinvolvedatanearlystageinthelaying
downofenvironmentpolicyobjectivesandsub­
sequentlyintheimplementation thereof.Co-responsi­
bilitypresupposesinvolvementindecision-making .
Thishasnotbeenthecaseinthepreparationofthe (i)OJNoC56,7.3.1990,p.14.

NoC287/30 OfficialJournaloftheEuropeanCommunities 4.11.92
presentActionProgramme .Theactorsconcernedmust
alsobeinapositionwheretheycanactuallyget
involved;thisimpliesnotonlycarefully-targeted finan­
cialsupportfornon-governmental organizations
(NGOs)specializinginenvironmentalproblemsbut[as
theCommitteewasatpainstopointoutinitsOpinion
onEnvironmental PolicyandtheSingleEuropeanMar­
keti1)]thepromotionofenvironmentally-conscious
behaviour,e.g.throughtheprovisionofunderstandable
information,aswellasthrougheducation,schooland
extra-curricula training,andgeneralupbringing.Given
theneedtomakethepopulationawarethatconsump­
tionpatternsmustchangeandgiventherealizationthat
publicopinionhasaveryimportantroletoplayinthe
programme,itisvitalthatmoresupportbegivento
thenon-governmental organizations (NGOs)respon­
sibleforcarryingoutthesetasks.
3.5.TheCommitteecallsoncemore[cf.Opinionon
Environmental PolicyandtheSingleEuropeanMarket
aswellastheOpinionontheFourthActionPro­
gramme^)]for'sustainableandenvironmentally-fri ­
endlydevelopment',whilstmakingitclearthatcom­
pliancewithenvironmental legislationmustbeanessen­
tialrequirementofprovisionsontheawardofgrants
fromCommunityFunds.Allmeasuresreceivingsup­
portfromCommunityFundsshouldbeanalyzedin
termsoftheircompatibilitywiththegoalofsustainable
andenvironmentally-friendly development .An
'environmentimpactassessment'mightthereforebe
requiredbeforegrantingentitlementtoresearch,devel­
opmentandotheraidprogrammes .Inthisrespectwe
wouldrefertothedeclarationoftheMaastrichtSummit
ontheenvironmentimpactassessmentofCommunity
measures(Appendix2tothenewlyproposedEC
Treaty).theprogramme'schapteronindustry.Theimportance
attachedbytheprogrammetoecoauditsasanoptional
measurecomplementing otherinstrumentscanonlybe
assessedbytheCommitteeonceithasfinishedits
examinationofthecorresponding Commissionpro­
posal.
4.2.1.Attentionhasalreadybeendrawntotheneed
totakeintoaccounttheworkingenvironment .The
Committeeispleasedthattheprogramme (Chapter
7.6..page69)mentionstheneedforhighlyqualified
environmental specialists.Itwouldhavenevertheless
welcomedamorethoroughtreatmentofthistopic,as
calledforinitsOwn-Initiative Opinionontraining,
safetyandenvironmentalprotection(4).
4.2.2.Itisparticularlyimportanttopromotesmall
andmedium-sizedfirms(SMEs)intradeandindustry.
4.2.3.'Integrated environmental protection
measures'arenecessarybeforeauthorization canbe
giventoconstructnewplants.TheCommitteeregrets
thattheprogrammedoesnotsayhowenvironmental
protectionstandardscanbevigorouslyimprovedwith­
outeachtimerequiringanewpieceoflegislation.
4.3.Intheprogramme'senergysector,improve­
mentsintheefficiencyofenergyconsumptionand
energyconversionhaveadecisiveroletoplayinsaving
resourcesandpreventingenvironmental damage.The
decentralization ofelectricityproduction (withtheaim
ofcombinedpower/heatproduction )deservestobe
mentionedasoneofthepracticalmeasurestothisend.
Sinceaverylargeproportionofenergyisconsumedby
privateindividuals (householdsandmotorvehicles),
theprogrammeshouldmakeprovisionforconsumer
informationandforthepromotionofenergysavings
byindividuals.
4.3.1.Studieswillhavetobemadetofindoutwheth­
ertheC02reductiontargetswillbesufficient.The
programmeitselfdoesnotgiveanyexactfigures.We
wouldalsoreferheretotheCommittee'sOpinionon
'EnergyandtheEnvironment'(5).
4.3.2.Intheprogramme'schapterontheenergy
sectornoreferenceismadetotheuseofnuclearenergy.
Nuclearenergyishowevercoveredinthechapteron
the'managementofrisksandaccidents'(Chapter6,
page61).
4.3.3.Incentives(particularlytaxincentives)forthe
accelerateddevelopmentandapplicationofrenewable
energysources,aswellas'leastcostplanning'regarding
investmentinenergyproduction (optimizationofexist­
ingorfutureenergy-production ,energy-storage and
energy-conversion capacities),arenotdiscussedincon­4.Sectoralobjectives
4.1.Focussingeffortsoneconomicsectors(industry,
energy,transport,agriculture,tourism)shouldmake
foraconcentratedprogramme .Invariousplacesthe
Commissionmentionstheimportanceofenvironment
impactassessmentsfortheimplementation ofthepro­
grammeandtalksofextendingthemto'plansand
programmes';unfortunately ,theoriginaldecisionto
extendenvironmentimpactassessmentstopolitical
decisionshasbeendroppedintheproposednew
environmentprogramme .Giventhegreatimportance
ofpoliticaldecisionsintheimplementation ofenviron­
mentalprogrammesatalllevels,thereisevidentlya
goodcaseforbringingbackthe'politicalevaluation'
originallyplannedintheprogramme.TheCommittee
thereforeproposestomaketheplannedadditionsto
theDirectiveonenvironmental impactassessments (3)
assoonaspossible.
4.2.Theinterestingcommentson'improved
resourcemanagement'arenotbackedupbydetailsin
(!)OJNoC332,31.12.1990,p.107.
(2)OJNoC180,8.7.1987,p.26.
(3)OJNoL175,5.7.1985,p.40.(4)OJNoC159,17.6.1991,p.49.
(5)OJNoC269,14.10.1991,p.67.

4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/31
cretedetailintheprogramme .Precautionarymeasures
topreventchangesintheworldclimateinevitablyinflu­
enceenergypolicy.4.5.5.Theexistingfisheriespolicyshouldbeadjust­
edtoensurethatitis'sustainableandenvironmentally
friendly'.
4.6.The'tourismandenvironmentalprotection'sec­
torhasstillnotreceivedpropertreatmentinthepro­
gramme.Considerationshouldbegiventotheintroduc­
tionofobligatorystudiesassessingtheenvironmental
impactoftouristinfrastructures .A'tourismand
environmental protection'programmeshouldinclude
appropriateinstrumentsforencouraging'greentour­
ism'.Taxesleviedontourismmightalsobeusedfor
environmental protectionpurposes.Inthiscontextthe
CommitteewelcomestheEuropeanParliament'sresol­
utiononaprogrammeforCommunityactioninfavour
oftourism(3).ItwouldalsorefertoitsOpiniononthe
'Communityactionplantoassisttourism'(4).4.4.Withregardtothetransportsector,wewould
refertotheCommittee'sOwn-initiative Opinionon
Environmental PolicyandtheSingleEuropeanMarket
(cf.above),giventhefearthattheSingleMarketwill
haveadversesideeffectsontheenvironment .Wewould
alsorefertotherecentCommissionGreenPaperon
theimpactoftransportontheenvironment (x)onwhich
theESCwilldeliveraseparateOpinion.
4.4.1.Insufficientattentionisalsopaidtothedam­
agingeffectsairtransporthasontheenvironment .
4.4.2.Theaimmustbeapolicywhichgivespublic
transportpriorityoverindividualtransportandrailand
inlandwaterwaytransportpriorityoverroadandas
faraspossibleairtransport.5.Themesandtargetsoftheprogramme
5.1.Theprogrammeincludesunderthisheading:
—climatechange,
—acidificationandairquality,
—protectionofnatureandbio-diversity ,
—managementofwaterresources,
—theurbanenvironment ,
—coastalzones,
—wastemanagement .
5.1.1.Therelationshipbetweenthischapterofthe
programmeandthebreakdownbyeconomicsector
should,intheviewoftheCommittee,beexplainedor
definedmoreclearly.
5.2.Discussingclimateproblems(dangerofglobal
warming)meanstakingintoconsiderationnotonly
C02butalsoNOx,methaneandCFCs.TheCommittee
welcomestheCommissionproposalthattherelevant
ECRegulationshouldbringforwardthephasingout
ofCFCsandothergreenhousegases;italsowelcomes
theCommission'sproposaltotightenuptheMontreal
protocol(5).
5.2.1.TheCommitteenoteswithinteresttheconcern
expressedintheprogrammeaboutclimaticchange,
andapprovestheproposalsregardingtheCommunity's
contributionstoprevention (chapter5.1).TheCom­
missionhasnowsubmittedaseriesofproposalsonthe4.5.Asfarastheagriculturalsectorisconcerned,the
programmestatestheneedtotakeintoconsideration
environmental factorswhentheCAPisreformed.We
wouldreferheretotheCommitteeOpiniononthe
EnvironmentandAgriculture (2).
4.5.1.Europe'sagriculturalpolicyshouldbeaimed
at(a)restoringecologicalbalanceinruralareasand
(b)promotinghigh-qualityproductsthrougheconomic
incentives .
4.5.2.Effortsshouldbemadetoensurethataid,e.g.
fromfundsearmarkedfortheCAP,shouldinfuture
beavailableonlyfor'sustainableandenvironmentally­
friendly'measures.CAPfundsshouldalsobeused
topromotemeasurestoprotecteco-systemsandthe
countryside .
4.5.3.Policiesinvolvingland-use(CommonAgricul­
turalPolicy,forestrymanagement ,transportandenergy
policy,tourism)alsoneedtobebettercoordinated .
Particularattentionshouldbepaidtosoil-conservation
sothatmeasurestocombaterosionandmaintainfer­
tilityneedtobeintroduced.Aschemepotentiallyben­
eficialforbothagricultureandforestrywouldbethe
afforestation (withsuitabletypesoftrees)oflandpre­
viouslyusedforagriculture .
4.5.4.Farmersneedtobebettereducatedandinfor­
medaboutecologicalfarming.
(!)COM(92)46final.(3)EuropeanParliament'sresolutionof18.2.1992.
(4)OJNoC49,24.2.1992.
(5)ProposalforaRegulationof20.3.1992;COM(92)106. (2)OJNoC298,27.11.1989,p.40.

NoC287/32 OfficialJournaloftheEuropeanCommunities 4.11.92
Fundamentalenvironmentpolicyprioritymustbegiven
tothepreventionofwaste,includingitsre-use;only
thencanmeasuresbetakentorecyclewasteanddispose
ofitinasafe,environmentally-friendly manner.
5.7.1.Thisprioritytopreventwasteisfullyrecog­
nizedintheCommissionprogrammebut,becauseof
thelackofconcreteinformation,itishardtosayto
whatextentitisreallytobetakenseriously.Thus,for
example,well-triedmethodsofwasteprevention,e.g.
thedepositandreturnscheme,needtobetakeninto
consideration .
5.7.2.Inthenearfuturepackagingwastewillbecome
aproblemrequiringurgentattentionthroughoutthe
Community .TheCommissionprogrammeshould
evaluatethemeasurestakeninsomeMemberStatesto
promotetherecyclingandre-useofpackaging.
5.7.3.Insofarastheabovemeasuresarenotenvis­
agedatCommunitylevel(andpartlybecauseofthe
principleofsubsidiarity),effortsshouldbemadeto
ensurethatanyMemberStatesimplementing such
measuresarenotexposedtotheriskofinterventionby
theCommission .
5.7.4.Theprincipleofavoidinganytransportof
wastewhichisnotabsolutelynecessarydeservescon­
tinuingsupport.TheexportofCommunitywastefor
dumpingoutsidetheCommunityalsoneedstobe
restrictedonthebasisoftheBasleConvention (cf.
Table14;'waste').preventionofC02emissions,onthegreenhouseeffect
andonimprovedenergyefficiency[COM(92)180,181,
182and226]inwhichprovisionisalsomadeforecon­
omicandtaxmeasures.Withregardtotheseproposals
(theCommunity'scontributiontothepreventionof
globalclimatechange),theCommitteewouldrefer
toitsOpiniononEnvironmentPolicyandtheSingle
EuropeanMarketaswellasitsOpiniononEnergy
andtheEnvironment (points2.4.2.and2.4.3.)(*)and
reservestherighttoissueanOpiniononthenew
proposals.
5.3.Asfarasairqualityinthebiosphereiscon­
cerned,theCommitteeispleasedthatitsrepeatedcall
fortheadoptionofWHOvalues(2)hasbeenanswered
inTable9.
5.4.Withregardtothemanagementofwater
resourcestheme,theCommitteecallsforenergetic
measurestolimittheuseandconsumptionofwater
resources;italsocallsforregulationsontheuseof
groundwatersuppliesinlinewiththeCouncilResol­
utionof25February1992onthefutureCommunity
groundwaterpolicy(3).Theprogrammeitselfhas
nothingtosayabout:
—thefallinthegroundwaterlevel;
—excessivesaltconcentrations inthesoilsofSouthern
Europe.
5.5.Inconnectionwiththe'urbanenvironment'the­
me,wewouldrefertotheCommittee'sOpiniononthe
CommissionGreenPaper(4).Planningandinfrastruc­
turemeasuresshouldlikewisebesubjecttoenvironmen-,
talimpactassessments—withdueregardbeingpaid
totheenvironmental problemofnoisewhichisof
exceptionalimportanceinbuilt-upareas.Wearestill
awaitingaCommissionDirectiveonnoise.Thepro­
grammeshouldalsocontainrecommendations onhow
toavoidahighconcentrationofindustrialundertakings
inindividualregions.Wewould,however,drawatten­
tiontotheCommunity'slimitedpowersintermsof
townplanning.
5.6.Incoastalareas,itisnecessarytofullyprotect
theenvironmentwhenengagingintourism,industry
andothereconomicactivities(5).Particularprotection
mustbeaffordedtohithertountouchedstretchesofthe
coast(cf.CouncilResolutionof25February1992on
thefutureCommunitypolicyconcerningtheEuropean
coastalzone)(6).
5.7.Themanagementofwastegeneratedwithinthe
Communitywillbeakeytaskofthenextfewyears.6.Managementofrisksandaccidents
6.1.Withregardtotheprogrammeontheprevention
ofrisksandaccidents(page62etseq.),theCommittee
ispleasedthattheprovisionsonhazardouschemicals
aretobeupdatedinthelightofscientificandtechnical
progress(cf.Table15).
6.2.TheCommissionquiterightlymentionsthe
urgentneedtoassessindustrialrisks,particularlyin
respectofchemicals,biotechnologyandnuclearenergy.
IntheviewoftheESC,riskassessmentshouldcover
notonlytheeffectsontheenvironment,butalsothe
immediatedangersandhealthhazardstoemployeesat
theworkplace.
(')Cf.footnotes1,p.29and1,p.31.
(2)WHOGuidelinesforAirQuality—1987.
(3)OJNoC59,6.3.1992,p.2.6.3.Ahighlevelofprotectionisapre-requisitefor
theauthorizationofsubstances.Thisentailsadapting
limitvaluestostate-of-the-art technologyandscience.
6.4.Community-wide limitvaluesshouldinnoway
oustmorestringentnationalenvironmental orhealth
standards;thisisparticularlytrueofradiationprotec­
tion.TheCommissiondocumentfailstorefertothe
needtoreviewthelevelsofradiationtowhichflight(4)OJNoC269,14.10.1991.
(5)Cf.alsoCommitteeOpinionon'TourismandRegional
Development',OJNoC332,31.12.1990,p.157point6.5.
(6)OJNoC59,6.3.1992,p.1.

4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/33
personnelmaybeexposed,ortotheneedtodevelop
commonradiationstandards.7.3.Economicinstrumentsofenvironmentpolicy
7.3.1.Theprogrammelists:
—taxesandfees,taxincentives,stateaid;
—eco-auditing ; 7.Broadeningoftherangeofenvironmental instru­
ments—civilliability;
—eco-labels.
7.1.TheActionProgrammeprovidesfortheintro­
ductionofmarket-based instrumentsforEurope's
futureenvironmentpolicy,therebyresultinginan
'instrumentmix'ofregulatoryinstrumentsandecon­
omicmeasuresdesignedtoensurethatenvironmentally­
friendlybehaviourpaysoff.Thisnewapproachisgen­
erallywelcomedbytheCommittee.Unfortunatelythe
Commissionneitherdescribesnoranalyzesthepoten­
tialandtheweaknessesofindividualinstruments .7.3.2.Economicinstrumentsareprimarilysuitedto
tacklingsupra-regional issuesandhelpingtosolveglo­
balenvironmental problems[e.g.climateprotectiontax
(seepointNo5.2.above)].
7.3.3.TheCommitteedealtwiththeproblemsof
'internalizing'externalcosts(cf.pages8and67ofthe
programme)initsOwn-Initiative OpiniononEnviron­
mentalPolicyandtheSingleEuropeanMarket(cf.
above).Itisdoubtfulwhethersuch'internalization 'is
practicalatthemomentsincetheCommunitydoes
nothavethenecessarymicro-economic andmarket­
economydataforanActionProgrammecoveringthe
perioduptotheyear2000.Norhavethesocialimpli­
cationsofsuchapolicybeenthoughtthroughinany
depth.Theinternalization ofexternalcosts,e.g.inthe
caseoffuel,couldleadtoasituationwherepeopleon
lowerincomesareimmobilizedandunabletoenjoy
theirrighttofreedomofmovement,whereasthoseon
relativelyhighincomeswouldremainlargelyunaffected
bythecostfactor.Undernocircumstancesshoulddam­
agetotheenvironmentbeinanyway'legitimized'by
financialcompensation .
7.3.4.TheCommittee'sOwn-Initiative Opinion
mentionedabovegoesintoproblemsrelatingtothe
classificationandlevelofenvironmental charges,levies
andtaxes.
7.3.5.Indiscussingeconomicinstruments ,theCom­
missionquiterightlybringsupthequestionofcivil
liability.Unfortunately theDirectiveoncivilliability
fordamagecausedbywaste,whichwasdiscussedby
theCommitteeaconsiderabletimeago,hasstillnot
beenadopted.TheCommissionprogrammealsofails
todealwithgrouporjointliabilityincaseswhere
thepartyresponsiblecannotbeidentified(e.g.old­
establishedtips;cf.abovementioned Committee
Opinion).
7.3.6.TheCommitteewelcomesthefactthatthe
programmementionstheagreementsconcluded
betweenindustrialbranchesandfirmsontheonehand,
andtheauthoritiesontheother,ontheachievementof
environmental objectives [seepages29,56(Table14)
and64].TheCommitteehasexpresseditssupportfor
thisinstrumentevenearlier(seeCommitteeOpinionon
Environmental PolicyandtheSingleEuropeanMarket,
mentionedabove).7.2.Regulatoryinstruments
7.2.1.ItisnotclearfromreadingtheCommission
paperwhetherregulatorymeasures(emission,process
andproductstandards)areinfuturetobeconcerned
(cf.chapter7oftheprogramme,page64)solelywith:
—establishingfundamentallevelsofenvironmental
careandprotection;
—ensuringthefulfilmentofinternationalcommit­
ments;
—ensuringthesuccessoftheSingleMarketfroman
environmental protectionpointofview.
7.2.2.Hitherto,environmentalprotectionharmoniz­
ationintheinterestsofachievingaSingleMarkethas
moreoftenthannotbeenatthelowestcommonlevel.
AlthoughtheSingleActstipulatesthattheopposite
mustbeachieved,anindependentenvironmentpolicy
providingahighlevelofprotectionhasfrequentlyhad
toretreatinthefaceof'lowestcommondenominator'
harmonization .Whetherregulatorymeasuresshouldin
futuremerelylaydownminimumstandards(inrelation
toeconomicinstruments),orwhethertheyshouldalso
provideforahighlevelofenvironmentalprotection,is
apointwhichthereforeneedstobeclarified.
7.2.3.IntheviewoftheCommittee,thenon-trans­
positionof-Communitylegislationcanalsobeeffec­
tivelycounteredbywarningsortheimpositionofpen­
altypayments,aslaiddowninArticle171ofthepro­
posednewECTreatyagreedinMaastricht.TheCom­
missionalsomentionsthispossibility (seepage84).The
Committeeitselfadvocatesthecreationofasystem
wherebyfailuretocorrectlytransposeCommunitypro­
visionsintonationallegislationmightresultinactions
beingbroughtbyindividualcitizensagainstMember
States,ashappenedinthecaseofthejudgmentofthe
EuropeanCourtofJusticeof19November1991(Case
No6/90and9/90).7.4.Horizontalmeasures
7.4.1.TheCommitteewelcomesthedetaileddescrip­
tiongiveninTable17oftheprogrammeandespecially

NoC287/34 OfficialJournaloftheEuropeanCommunities 4.11.92
thereferencetoimprovingregularinformationonthe
stateoftheenvironmentingeneralandinparticular.
7.4.2.Thedocumentquiterightlypointsoutthatthe
EuropeanAgencyfortheEnvironmentisanimportant
instrumentforimplementingandevaluatingthepro­
gramme.Itisscandalousthat,althoughthedecisionto
setuptheAgencywastakenmorethantwoyearsago,
ithasstillnotseenthelightofdaybecausethequestion
ofitslocationhasbeenlinkedwiththelocationofthe
otherEuropeanInstitutions .ToenabletheAgencyto
startworkimmediately,theCommitteewonders
whetheritwouldnotbeworthconsideringinitiallythe
designationofaprovisionallocation.8.3.TheCommissionisplanningan'Implemen­
tationNetwork',comprisingrepresentatives ofrelevant
nationalauthoritiesandof'theCommission .Details
aboutthisproposalarenotgivenintheprogramme .
Theproposalcanthereforeonlybeevaluatedifconcrete
informationisprovided.TheCommitteeassumesthat
itwillbeinvolvedinfurtherdiscussionsonthematter.
8.3.1.TheCommitteenoteswithsatisfactionthat
theproposaltosetupanindependentEuropean
environmentinspectorate,whichwasstillbeingpur­
suedintheFourthEnvironmentProgramme,hasnow
beingdropped.TheCommitteehadrejectedthispro­
posalinanearlierOpinion.
8.4.Thepresentenvironmentprogrammerequires
morethaneverbeforethatenvironmental policybe
integratedwithotherpolicyareas.AninternalEnviron­
mentCoordinationCommitteeinvolvingtheDirector­
ates-Generalconcernedaccordinglyneedtobesetup
toensuresuchintegrationintheinterestsoftheCom­
mission'spracticaltasks.ThisCoordinationCommittee
wouldalsohavethetaskofcarryingoutinvestigations
tofindoutwhetherCommissionactionsandmeasures
arecompatiblewiththeenvironment .7.4.3.Itgoeswithoutsayingthatresearchanddevel­
opmentinthefieldoftheenvironmentneedstobe
promotedmorevigorously.Researchanddevelopment
programmes,whichshouldbebasedonthemostup­
to-dateresearchfindingsineacharea,shouldnotbe
allowedtocausedelaysintheimplementation of
urgentlyneededenvironmental action.
8.Implementation andenforcementoftheActionPro­
gramme
8.1.Theideaofthe'self-enforcement 'ofenviron­
mentallynecessarymeasures(cf.page82)cannotbe
judgedinthelightofpresentexperienceevenifwetake
intoaccountfuturetrendsandallowforaninstrument
mix.EventheCommission seesself-enforcement as
onlyalonger-termobjective.Economicinstruments
ofenvironmental policy,particularlyintheformof
charges,leviesandtaxes,requirearegulatoryframe­
workaswellassupervisionbytheauthorities.Bytheir
verynature,suchmeasuresentailinterventioninthe
freemarketeconomymechanism .9.Internationalenvironmental policy
9.1.TheCommitteemaintainsthattheEuropean
Communityshouldplayaleadingroleinenvironmental
policynotonlyinrespectofEuropeanMemberStates
butalsoworldwide .Thisisbecauseof:
—thehighdegreeofindustrialization inthecountries
ofEurope,whichmakesourcontinentoneofthe
majorsourcesofglobalenvironmentalpollution;
—thehighleveloftechnologyneededforimplemen­
tationofenvironmental policy;
—thefinancialresourcesofEurope;
—therelativelykeenawarenessinmanypartsofthe
ECabouttheneedtoprotecttheenvironment .
9.2.Europeanachievementsinpursuitofworldwide,
sustainableandenvironmentally-friendly development
shouldprovideamajorbenchmarkforrelations
betweentheEuropeanCommunityandtheoutside
world.ThispresupposesthatECenvironmentpolicy
cangenuinelyclaimtomeetthechallengesofthepresent
dayandthenextfewdecades,whichinturncallsfor
thepreparationandimplementation ofaprogressive
environmental policy—somethingwhichhasnotso
farbeenachievedalloverEurope.TheEC'sdevelop­
mentaidpolicyshouldalsobemoreenvironmentally­
friendly.
9.3.TheeconomicpoweroftheCommunityimplies
anobligationtoco-financeenvironmental projectsin
developingcountriesandEasternEurope.Withoutaid
fromindustrializedcountries,internationalmeasuresto
restoreecologicalbalancewillnotbetaken.Atatime8.2.TheCommission'sproposed'Consultative
Forum'couldplayanimportantrolebybuildingup
mutualconfidenceandprovidingappropriategroups
andinterestswithadvanceinformationinrespectof
theconcretemeasurestobetakentoimplementthe
programme.TheexistenceofsuchaForumalsomeans
thatgroupsconcernedwithenvironmentpolicywould
beabletoputforwardtheirviews—apointmadeinthe
programme .TherelationshipbetweentheConsultative
ForumandtheEnvironmental PolicyReviewGroup
(thelatterconsistingofgovernmentrepresentatives (cf.
chapter9oftheprogramme )isnotclearfromthe
Commissionproposal.TheCommitteeurgestheCom­
missiontoorganizeassoonaspossibleawide-ranging
environmental conferenceonthetopicsdiscussedin
theenvironmentprogrammewiththeparticipationof
representatives ofgovernmentsandsocio-economic
groups.

4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/35
ofreducedspendingondefence,however,itmightbe
easierthanbeforetofinancesuchaidprovided
additionalfundsarenotneededtocleanupformer
militaryareas.Consideration shouldalsobegivento
expandingthedevelopmentaidfundinordertofinance
activitieswhichplacealessheavyburdenonthe
environment andnaturalresources.TheCommitteeis
pleasedthattheCouncilofMinisterstookadecision
tothisendatitsmeetingon5May1992.
9.4.Europe'senvironmentpolicymustalsoinclude
ademandthattheotherindustrializedcountries(USA,
Canada,Japan),takeconcertedactionatworldlevel.
9.5.Communityprovisionsapplicabletodirecttrade
withthirdandparticularlydevelopingcountriesneed
tobereviewed.Thisisespeciallytrueofexportsof
dangeroussubstances (cf.heretheCommittee'sOpin­
ionontheProposalforaCouncilRegulationonthe
exportandimportofcertaindangerouschemicals)I1).
TheCouncilofMinisters'declaredprinciplethat
exportsshouldonlybereleasedonthebasisof'prior
informedconsent'needstobereviewedinthelightofpracticalexperiences .Stepsshouldalsobetakento
ensurethatnogoodsproducedunderenvironmentally­
harmfulconditionsandincontravention ofinter­
nationalstandardsareimportedintotheEC.
9.6.UndertheEnvironment Programme,Com­
munitybodieswillhavetocooperateevenmoreclosely
withinternationalorganizations involvedinenviron­
mentalpolicy-making beyondEurope(particularly
UNEPandOECD).
9.7.Itisalsonecessarytocooperatemoreclosely
withcountriesoutsidetheEuropeanCommunity,par­
ticularlythecountriesofEasternandCentralEurope,
inthedevelopmentofenvironmental law,theexchange
oftechnologiesandstatistics,andpolicyoneducation
andinformation .
9.8.InthiscontexttheUnitedNations'International
ConferenceontheEnvironmentandDevelopment
(UNCED)heldinBrazilinJune1992wasofgreat
importance .Thetopicsofthisconferencehaveattracted
theattentionofawideaudienceandparticularlynon­
governmentalorganizations (NGOs).Theresultsofthis
UNCEDConferenceshouldbeworkedintotheAction
ProgrammetoensurethatEurope'senvironmentpolicy
continuestodeveloprapidly. ()OJNoC191,22.7.1991,p.17.
DoneatBrussels,1July1992.
TheChairman
oftheEconomicandSocialCommittee
MichaelGEUENICH