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DOCUMENTS "COM"
COM(78)117
Vol.1978/0041

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COMMISSION OFTHEEUROPEAN COMMUNITIES
V
COM(78)117final.
Brussels,20March1978,
COMMUNICATION FROMTHECOMMISSION TOTHECOUNCIL
ANDTHEEUROPEAN PARLIAMENT
onactiontakentosimplifytheagricultural legislation
C0M(78)117final

SIMPLIFICATION OPAGRICULTURAL LEGISLATION
Communication from theCommission totheCouncil and theEuropean Parliament
onaction taken tosimplify -theagricultural legislation
Report totheCouncil concerning measures tosimplify the
Agricultural Legislation
TheCouncil initsResolution of23November 197",concerning themeasures
tosimplify theagricultural legislation (l),noted thework undertaken "by
theCommission tosimplify Community legislation ,assetoutinthe
Commission communication totheCouncil (2),andinvited theCommission
tocontinue itsefforts inthis direction andreport back by31December
1977 .
Theprogress made in "thesimplification oi "thelegislation eince "the d.av,e
oftheprevious communication andtheproposed future programme forfurtho -
simplif ication isshown intheAnnex .
TheCommission requests theCouncil totake note oftheproblems of
simplification andtosupport theaction taken .
(1)OJNoG287 ,4.12.1976 ,P-1
(2)GOM (75)532of27.10.1975 -

SIMPLIFICATION OPAGRICULTURAL LEGISLATION
ANNEX
A. Backpround .
Since theinception oftheCommon Agricultural Policy ,thelegislation
ofthecommunity onthe subject ofagriculture hasbeen confronted by
various andfrequently changing economic problems .This created the
present situation inwhich ,fortheagricultural provisions covering an
important number ofdifferent areas ,theexisting regulations have
sometimes become very complex .
TheCommunity legislators ,inresponse totherequests forsimplification
have attempted andwill continue these attempts inthefuture ,todevelop
thelegislation intwoways .Inthefirst place bythesimplification of
therules ,mainly with regard totheir practical administration and
application aJid secondly bymaking theregulations more comprehensible
andmore coherent .Inthetwoyears since thefirst report ,some progress
towards simplification hasbeen made .However ,thelegislation for
agriculture must react tothechanging situation both economic and ingeneral .
Itmust also react tothe evolution ofmarket conditions and the
development ofnewproducts .Lastly ,itmust take account oftheintroduction
offraudulent goods andpractices .Therefore wehave conflicting tendencies
oneworking towards simplification the other following thecomplexities ofthe
economy ,theneeds ofthemarket sector andthefight against fraud ,thereby .
producing more complicated legislation .Simplification is,therefore ,a
necessity andaconstant task but onewhich cannot beexecuted
satisfactorily because oftheperpetually changing situation .
Simplification requires anoverall view oftheeconomic problems anda
knowledge oftheweak points ofCommunity legislation .Itisabove allthe
latter that must becorrected sothat existing inconveniences areremoved
and are avoided inthe future .
In1974 and1975 important steps were taken towards simplification .Since
then ithasbeen possible todetermine andisolate agood number ofthese
weak points andattempts have been made tocorrect them .Inthefollowing
paragraphs itwill beseen that ithasbeen possible toremove orreduce
theeffects ofsome ofthedifficulties .However ,forsome oftheproblems
isolated ^simplification isnotpossible ,ornotpossible atthis time ,
because there aresound administrative ,community ornational reasons for
thecontinutation ofaparticular control orsystem .Theremoval ofa

complication monearea can onoccasions lead toeven more problems in
another .
Some ofthedifficulties experienced are not limited toCommunity producers
ordistributors norcanthey always besolved byaction within the
Community .TheCommission together with theexperts from theMember States ,
therefore ,takes anactive part inthework ofthose international bodies
which have harmonisation and simplification ofcustoms procedures as
their aims .Simplification ,either introduced orproposed ,which relate to
customs control will often apply equally tonon-agriculturq.1 goods .Only
the simplification asitisapplied toagricultural products hasbeen
considered for thepurposes ofthis report .
B. Problems common tomore than one market sector
1.Consolidation andadapting ofthelegislation (l(l)*
(a)Council legislation
Since their adoption thebasic provisions concerning theorganisation
ofthevarious markets have been amended anumber oftimes .Byreaso
oftheir number ,their complexity anddispersal inthevarious
editions oftheOfficial Journal ,thetexts become difficult touse
andtheprovisions thus lack theclarity which should beanessentia
feature ofalllegislation .Idea% legislation foreach market secto
should beconsolidated inasingle edition oftheOfficial Journal .
Much progress hasbeen made inrecent years although itisrecognised
that because ofthedynamic situation inmost market sectors ithas
notbeen possible toachieve theabove aims infull .However ,this
desire forconsolidation must notrestrict thelegislator inhis
attempt tofollow economic orcommercial movements orin .his
application ofmodern techniques ,particularly where these produce
amore efficient useofthemanpower avails-ble .
Thelegislation inthefollowing sectors hasbeen consolidated ?
Fruit andvegetables **
Sugar **
Cereals
**Consolidation ofbasic regulations only ,adopted before tneprevious report .
*Reference toparagraph inprevious report .

Pigmeat
Eggsandpoultrymeat
Rice
Processedfruitandvegetables
Pish
Ovalbumine andlactotrumine
Thelegislationforthefollowingsectorsisintheprocessof"being
reviewedwiththeintentionofissuingtheminaconsolidated forms
Milkandmilkproducts
Wine
However,thecombinationofthedynamicevolutionofthemarketlegislation
andthelimitedstaffavailableforconsolidation purposesishardlyfavour­
ableforarapidachievement oftheseobjectives.
Overaperiodoftimeitisnecessarytoissueamendmentstothisconsolidated
legislation .ItistheintentionoftheCommissionthatwhentheseamendments
becomenumerous,theprogressofconsolidation shouldberepeatedandthe
legislation onceagainpublishedinasingleeditionoftheOfficialJournal.
Todatetherehasbeennocodifiedlegislation inneedofrepublishing .
(b)Commissionlegislation
Insomeareas,forinstancetheprivatestockingofsugar,intervention
storageofcerealsanddocumentandqualitycontrolofwines,thelegislation
hasbeenclarified andtosomeextentconsolidated .Intheconsolidation
ofCommissionlegislation thepatternisusuallyoneofgroupingtogether
anumberofearlierregulations followinguponsomechangewhichrequiredan
amendmenttotheexistingregulations .Therefore,theconsolidation ofthe
Commissionlegislation hasnotproceededatthesamepaceasthe
consolidation ofCouncillegislation .Withthelimitedresourcesavailable
forthisworktheCommissionhaveconcentrated ontheCouncillegislation
andthosepartsoftheCommissionlegislation whichrequireamendmentwhether
ornotitwastobeconsolidated .Aconsiderable amountofworkisstill
requiredonthislegislation .
2.Harmonisation andSimplification
WherepossibletheCommissionhaveharmonisedprocedures.However,excessive
harmonisation canleadtounnecessarycomplications andthusworkagairtct-
thecentralaimwhichissimplification .TheCouncilandCommissionmust:
Therefore,considernotonlytheadvantagesofharmonisation butalsothe

adverse effects ontheproducers ordistributors ofaparticular product
which mayoutweigh those advantages .
(a)Customs procedures
(i)International agreements
There was asimplification oftheCommon Customs Tariff which came
into useon1January 1978 asaresult oftheacceptance ofthe
Recommendations bytheCustoms Cooperation Council .Some tariff heading :
areremoved orcombined with other headings toreflect more accurately
thecurrent patterns oftrade .Meanwhile theCommission ,inconjunction
with the experts from the Member States containues areview ofeach
Chapter oftheNomenclature andareworking within theCustoms
Cooperation Council toproduce aharmonised commodity description and
coding system foruse ininternational trade .
Similarly theCommunity isacontracting party totheinternational
convention onthe simplification andharmonisation ofcustoms proceduras .
Themain convention and itsannex onwarehouses was accepted bya
decision oftheCouncil ,in1975^\onbehalf oftheCommunity andits
Member States ,while further annexes onorigin ,transit andprocessing
2were accepted in1977 •
(ii)Community level
Meanwhile closely associated with theacceptance oftheinternational
agreements theCommission continues toimplement itsgeneral
programme fortheapproximation ofcustoms legislation ^"^. Procedures
tohave been harmonized ortohave been the subject ofharmonization
proposals include thefollowing :Processing ofgoods imported or
exported temporarily ,goods returned from exportation orafter
importation ,Release ofgoods into free circulation ,Repayment and
remission ofimport andexport duties ,Deferment ofpayment ofimport
andexport duties ,Goods imported fortesting andExport documentation
and procedures .
Inparallel with this theCommission hasovtinued tomake progress
4)intheimplementation ofitssimplification programme of1975
and toreoort separately onthis progress .
(iii)General
Thesimplification brought about ortobeachieved bythemeasures at
(1)OJNoL100 ,21.4.1975 ,P«1
(2)OJNoL166 ,4.7.1977 ,P»1
(3)Document SEC (71)682final ,28.4 1971 »
(4)CCK(75)67 Final ,25.2.1975 »

-5-
(i)and(ii)abovewillhaveimportantrepercussions onimportedgoods
includingagricultural products.
(b)Otherprocedures
(i)HorizontalRégulations
TheCommissionhasendeavoured toreducethenumberofregulations
issued.Onemethodusedtothisendhasbeenthe"horizontalregulation".
Wherepossibleasingleregulationisissuedforaparticularaotivity
whichiscommontoanumberofmarketsectors.Byexaminingclosely
therequirement ofthevariousmarketsectorsithasbeenpossibleto
removesomeofthevalueorquantitylimits,timeperiodsorcontrol
requirements .Inrevisingtheseregulations ,notonlyistherea
reductioninthenumberissuedbutthetaskoftheuser,particularly
thatoftheauthoritiesintheMemberStates,i3simplifiedbythe
removalofoutdatedrequirements andthemoreuniversalapplication
ofthesehorizontalregulations .
Horizontalregulations havebeenadoptedinrespectofthefollowing
activities commontoseveralmarketsectors.
Exportrefunds**
ImportandExportlicencesandAdvancefixingcertificates **
cvj Exportleviesandcharges
01rO
CommunityTransit***
OLP\
Communication ofimportandexportdata(seealso(ii)below)
(h^
wg.Importations forcertaindestinations ***
3OW
Sc'oStorageandmovementofIntervention products#
>00
Ahorizontalregulationwhichwilldealwiththeimportation ofproducts
.OCjf–1
:c-h&classifiedunderasubheadingofthetariffbyvirtueoftheproduction
*h£3
Swft^ofacertificateoforiginandqualityisbeingconsidered•
ooo
ctiO-H
i§ejofe
£1+3d(ii)Communication oftradeinformation (l(lO)and(ll))*
o£S00
_ir-<o Themanagementoftheagricultural marketrequiresthatcertaindata,
-ρ0.ω
§ferelatingmainlytotrade,shouldbetakenintoconsideration .This
•HO<0>
"S9'woinformation wasrequestedfromtheMemberStatesundervariousarticles
r–IM-HJ10insometendifferentregulations andreflectedtheneedsand
<y<DprH ,
wK characteristics ofthemarke?7^Ce5^ieneedforeachitemofinformation,
*2theintervalsbetweencommunications ,theacceptabledelaysbeforethe
'*¥*information iscommunicated totheCommission andthemethodtobe
usedforthisnotification wasexamined.Anewregulation on.
communication byMemberStatestotheCommissionofdatarelatingto
importsandexportsofcertainagriculturalproducts(l)becameVOou^Kro
ï)OIArop.c–
I–I

-6-
applicable on1October 1977 -This regulation standardises the
periods tobeused ,thelast dayforsubmission ,theinformation
required andtheform inwhich itistobesupplied .
This will greatly ease theburden oftheMember States inconnection
with thesupply ofinformation ,ofcourse ,theCommission will keep the
matter under review sothat theinformation requested isalways kept
toaminimum andwill continue toexamine thepossibility ofdata
transmission andprocessing using newmethods andprocedures .
(iii)Monetar.y Compensatory Amounts U'*CA )(l(l2))*
Although itwas notpossible tosimplify thenomenclature forMCAs ,see
4(b)below ,arious changes have taken place which remove some ofthe
problems .
Until November 1975 exporters ofproducts upon which there was anMCA
charge were required topay that charge onproducts put onboard sea
going vessels oraircraft oninternational routes .Theremoval of
this requirement ,subject tothequantities exported being reasonable ,
simplified the task ofthese operators and that ofthecustoms staff
controlling exports .
Other changes allowed theuse ofalternative evidence ofreceipt into
another Member State and theuse ofthe simplified rail procedure for
goods subject toMCAs being removed toanother Member State .
(iv)Export Refunds
Itisnecessary forexporters claiming apremium rate ofexport refund
toprove that theproducts entered thespecified third country .An
amendment totherelevant regulation allows theacceptance .ofalternative
evidence ofimportation where that originally required bytheregulation
isunobtainable .There was also aliberalisation ofthe requirements for
lowvalue consignements andanextension ofthetime limits .
3.Presentation oftheLegislation (l(a)to(b))*
Regulations that were issued merely tofi"^'reference values such asthose for
wine have been discontinued and those which refer tothefixing ofamounts
regular intervals areonly issued when there isanactual change inthose
tiie
amounts .Regulations arenowdrafted inthose cases where /mr.rk.its are
unstable incooperation with thevarious parties involved inthemarket .
*Reference toparagraphs inprevious rep' -"

-7-
sector and ,layattempting toanticipate future changs s,theCommission try
tolimit thenumber ofamendments that will become necessary atalatter
date *
Thevocabulary used inthelegislation isstandardised andtexts arealigned
where this ispossible .Thevarious language texts are compared with
similar texts onthe same subject .
Every effort hasbeen made toallow ample time between publication and theentry
into force oftheregulation .Atleast sixweeks isallowed forthose
regulations containing major changes intheprovisions intended tobeapplied
bycustoms authorities .Major tariff charges arelimited totwice ayear .
Formost agricultural regulations ,where there are nochanges tothe system but
merely anextension orreduction ofits scope orachange ofrate alesser
period isacceptable and ,often ,desirable .
4.Nomenclature (l(7)"ko(9))*
(a)Common Customs Tariff Asstated at2above ,thenomenclature inthe
Common Customs Tariff isbeing simplified toreflect certain changes
agreed within theCustoms Cooperation Council .Atthe same time the
opportunity was taken toexamine thesubheading affected bythis
change and ,xtfhere possible ,these were simplified .
Earlier thenomenclature forcertain products inthebeef ,cereals
and sugar sectors hadbeen simplified bytheremoval ofsome subheadings
forwhich there was noeconomic justification .Changes inthewine
sector and that ofprocessed fruit andvegetables also allowed a
slight modification within certain subheadings .These changes also
removed some oftheproblems with regard toimport licences and export
certificates inthese sectors .There was also amodification ofthe
tariff heading for olive oil .
Meanwhile incertain sectors ithasbeen necessary tointroduce changes
.inthe Common -Customs Tariff which increases the number ofsubdivisions .
These chants may "becaused "bytheintroduction ofnevrproducts ,the
need for more exact definitions 'within the market' sectors orthe
avoidance oftrade distortions .'Simplification isnotnecessarily
areduction inthe number of .lines orsubhead iri/rsbut rather areflection
oftheease with which theaverage user canestablish without doubt the
classification ofthegoods concerned .However ,-thereduction inthe
number ofdifferent rates ofduty and other amounts ,where this is
possible ,allows fewer ,wider classification bands tobedrawn .
(b)Other nomenclature
Itwasanticipated intheCommunication COM (75)532that during 1977
there would beareduction inthenumber ofproducts subject tothe
svstem ofmonetary compensatory amounts andthat this inturn would

reduce "thedifficulties caused bythis system with ,regard toits
nomenclature .Iffact ,duetothemonetary evolution this
hasnotbeen achieved .During 1977 i"twasnecessary to
reintroduce some products (products notincluded inAnnex IIofthe
Treaty )which hadbeen deleted in1974 and1975 •
Difficulties were experienced with thesystem ofaccession compensatory
amounts ,however on1.1 .78accession ofthethree newMember States
was completed and these problems have disappeared .
(c) Problems within individual sectors
!•Cereals (IIA)*
The Council Regulations forthis sector were consolidated prior to
the previous communication totheCouncil .Various amendments have
been made since publication butrepublication isnotnecessary at
this time .
Certain Regulations ,which establish theexport refunds tobegranted ,
which were published weekly ,cannowbepublished once infour weeks .
TheCommission ,together with therelevant Management Committee ,has
examined theproblems oftheminimum quantities acceptable for
intervention ,theadjustment oftheintervention price totake account
ofthespecific weight ofthecereals andprice reductions for
impurities incereals .Newregulations with theaimofsimplifying
theoperation oftaking cereal products into intervention have recently
been published(l ).
Moreover ,astudy iswell under waywhich will lead toaredrafting
oftheprovisions governing tenders forfood-aid .Simplification
will certainly result from this .
2.Wine products (I7and9andIIb)*
TheCouncil Regulations forthis market sector areinth6process ofbeing
consolidated .However ,agroup ofregulations were issued inonepublication
oftheOfficial Journal (2).Among other provisions ,these regulations
adjusted thescope ofthesector ,thereby removing confusion with thefruit
*Reference toparagraphs inprevious Communication
(1)1569/77,OjNoL174 ,14.7.1977 ,p«15
1570/77,OJNoL174,14»7.1977 ,Po18
1629/77,OJNoL181,21.7*1977 »P«29
(2)OJNoL135,24.5'I976 .

_a-
and .vegetable sector for certain juices ;removed therequirement for
certain import licences and transferred thepublication oftheaverage
prices andweighted average prices from thenormal regulations tothe
"C"series oftheOfficial Journal .The frequency with which information
regarding importations isrequired wasreduced toonce amonth oronce
intwo weeks .
Some products were removed frc..i the list ofthose requiring appellation
documentation and another provision allows thenecessary measures to
betaken with regard tothemethods ofanalysis .These changes formed
part ofaconsolidation ofsome oftheCommission Regulations inthis
sector .This consolidation included theArticles dealing with theVA
documentation ,however ,ithasnotbeen possible forvarious technical
reasons tocombine theTdocuments and theVAdocuments assuggested in
theprevious Communication .Similarly ,although theregulation provides
for thenecessary measure inrespect ofanalysis ofwine theCommission
still awaits details from some Member States onthis question .
TheCommission have proposed totheCouncil asimplification inthe
administrative procedures inconnection with thedistillation ofproducts
inthe wine sector .
3.Fruit andVegetables (IIc)*
The Council Regulations forprocessed fruit andvegetables have been
consolidated while those for theunprocessed fruit andvegetables
are offs.irly recent origin .
Thepossible abolition ofquality control onconsignments moving within
Member States hasbeen discussed and theCommission has put forward a
proposal toreduce theproblem .However ,atthis time ,theproposal has
notbeen voted bytheManagement Committee forFruit andVegetables .
4.Fats (IID)*
After astudy bytheManagement Committee forOils andFats itwas'
decided that itwas notpossible tosimplify theprovisions governing
theorganisation ofthemarkets and inparticular theprocedures whereby
oilseeds and olive oilare offered forintervention andresold bythe
intervention agencies .
5.Products notcovered byAnnex II(ilE)*
Certain modifications have been introduced which reduce the complexities
inthis sector ,particularly those caused bythevariable component
*Reference toparagraphs inprevious Communication

-10-
ofxhe charge .Thethreshold below which variable components are not
charged hasbeen raised to1xi.a./lOOkg.Furthermore ,therates ,still
published atquarterly intervals arenotamended within that period .This
hasbeen achieved bychanging thedate ofintroduction ofthenewrates ,
which nowcome into effect onthefirst dayofFebruary ,May ,August
andNovember .This allows thechanges forthebasic products within the
previous three months andinparticular thechanges atthebeginning ofthe
market year tobeincorporated into thenewrate .
Modification oftheCommon Customs Tariff hasproduced some reduction inthj
number oftariff lines forwhich rates a,retobefixed .
Themain problem with regard tothevariable components was theneed for
therates tobeassessed andpublished fortrade between theoriginal
six and each ofthe three new Member States and between the new Member
States plus rates between each Member State and third countries .This
publication occupied some 100/120pages oftheOfficial Journal .With the
removal ofAccession Compensatory Amounts ,itispossible tochange the
presentation oftheremaining figures andreduce the size oftheregulation
bysome 90$ «
6. Mille andMilk Products
TheCouncil Regulations inthis market sector arebeing examined with a
view totheir being published inaconsolidated form .Meanwhile some
simplification hasbeen possible with regard totheregulations issued in
connection with import levies .Achange ofpresentation hasallowed
areduction inthelength ofthese regulations .Similarly for
monetary compensatory amounts anewpresentation removes many ofthe
unnecessary lines ,makes theregulation easier toread ,reflects the
products within the sector more accurately andhasallowed some :
administrative simplification .
Anewregulation laying down general rules forthesupply ofskimmed
milkpowder andbutteroil asfoodaid1hasbeenintroduced which replaces
eight similar regulations .Theregulation harmonises theprevisions ,
tendering procedures ,control andsecurity arrangements forallthese
exportations .
7.Heat andMeat Products (I9)*
IntheBeef andVeal sector ithasbeen possible tosimplify the
nomenclature byabolishing those subheadings which wereunnecessary ^.
1.OJSoL43,15.2.1977 ,p.1*Referenc .- ■•=paregraph inprevious Coninraiiicati <^
2.OJKoL1Ô0 ,14.4.1976 ,p.1

-11-
D. Conclusions and future nrogramme
Since theprevious Communication totheCouncil concerning simplification
oftheagricultural legislation ,theCommission hascontinued itswork
ontheconsolidation oftheregulations ,produced further "horizontal "
regulations andexamined and ,where appropriate ,introduced orproposed many
simplifications .The future objectives oftheCommission are tomaintain
theexisting consolidated regulations "byupdating andrepublishing them as
necessary and toextend theprinciple tothe other sectors .Theuse of
"horizontal "regulations will beextended inthose areas where this is
possible .
There areanumber ofinternational approaches being mad.e with regard to
simplification including work ontheharmonization ofprocedures ,the
recommendations fortariff simplification andeventually theharmonization
system forcommodity description and coding .TheCommission will continue
totake anactive part inthese international meetings .
Intherecent past theCommission hasreviewed indepth thelegislation of
thevarious market sectors .Kence inthenear future the scope for
simplification within these sectors islimited .
Since theprevious communication there have been alarge number ofcontacts
between theCommission ,experts from theauthorities intheMember States ,
consultative groups andother interested parties .Recently some 80experts
from theauthorities intheMember States attended athree day seminar
atvjhich theproblems ofdocumentary proof fortheexport ofagricultural
products was discussed .Asaresult ofthis meeting and other similar
meetings ,theCommission isaware oftheproblems created bythelegislation .
Thepoints raised will beconsidered and ,ifpossible ,simplified
documentation andmore flexible provisions will beintroduced .Meanwhile ,
theCommission will maintain these contacts andwork towards simpler methods ,
where this ispossible ,inthefuture .
Hoonewould suggest that thepresent Community legislation foragriculture
issimple orthat nomore work isnecessary onsimplification .However ,
considerable progress hasbeen made inremoving some oftheproblems forthe
authorities and theproducers anddistributors ofagricultural products .