Opinion on measures to combat the socio-economic and environmental impact of drought in Southern Europe (96/C 100/12)

On 1 February 1995, the Committee of the Regions, acting under the first paragraph of Rule 10 of its Rules of Procedure, decided to draw up an Own-initiative Opinion on the above-mentioned subject.

Commission 2 for Spatial Planning, Agriculture, Hunting, Fisheries, Forestry, Marine Environment and Upland Areas, which was responsible for preparing the Committee's work on the subject, adopted its Opinion on 24 March 1995. The Rapporteur was Mr Rodríguez Ibarra.

At its 8th Plenary Session of 19 and 20 July 1995 (meeting of 19 July), the Committee of the Regions adopted the following Opinion.

1. Introduction

1.1. It is becoming increasingly difficult to view drought, floods and other climate-related natural disasters as merely cyclical problems. Examination of long-term weather patterns suggests that the earth is in the throes of major climate change. While we do not yet fully understand the causes of this change, or know how to tackle it, worldwide human activity is undoubtedly a contributory factor.

1.2. Water, which until recently was readily available throughout Europe, is starting to become scarce in much of Southern Europe, while in Central and Northern Europe the canalization of rivers and the major land communication arteries increase the risk of flooding. Although water-supply infrastructure now extends throughout the EU, some Member States face persistent droughts which drain reservoirs and threaten farming while Central European States face disastrous floods which put life and property at risk. In other words: empty reservoirs in some areas, and dykes breached by water in others.

1.3. Average annual water use within the EU rose from 600 cubic metres per head in 1970 to 800 cubic metres in 1985. However, these figures tell us little about how water is used, or about its economic value. While in some Member States water is used chiefly in industry and the home, its principal use in the Mediterranean nations is agricultural, since crops cannot be irrigated by rainwater alone. A prolonged drought such as the present one therefore has disastrous economic effects.

1.4. The 'Europe 2000` paper warns that although only a modest expansion of irrigation is expected in the next few years, water consumption in the less-developed nations is set to rise even if agriculture remains at present levels, as a result of increased industrial use and rising living standards. Europe 2000 also notes that at local level, droughts, growing industrial use of water and supply problems can lead to shortages and hardship, and that the problem is particularly acute on islands.

1.5. Although overall demand in Europe is below the level at which supplies can be renewed, an analysis of the regional situation reveals major variations between different areas of the EU. Reserves have been over-exploited in the driest areas (i.e. those with the greatest agricultural demand for water) and in some high-demand areas such as Southeast England.

1.6. As the effects of drought only emerge slowly, the public tends not to view it as a natural disaster comparable to hurricanes, earthquakes or floods, the sudden and dramatic nature of which makes a greater impression. However, after four successive years with virtually no rain (as is the case in Southern Europe at present), the disaster takes on a - sometimes irreversible - depth, scale and impact which make other natural calamities pale in comparison. It is no longer just a matter of the huge economic losses caused for example by irreparable damage to crops; serious restrictions on domestic water use bring a very obvious deterioration in quality of life, while the relentless advance of desertification brings its own environmental consequences.

1.7. Persistent water shortages in the Community's farmlands trigger a ruinous cycle. Although Member States have the necessary infrastructure for water collection and distribution, the absence of a minimum amount of rainfall greatly reduces reservoir stocks, making it necessary to ration water use and encourage low-consumption (but far less profitable) crops such as sunflowers. In order to maintain their income level, farmers are obliged to cultivate a larger area, which means that they are further penalized by the agricultural authorities who fail to recognize that the move is dictated by adverse weather conditions. Similarly, the depletion of reservoir stocks encourages the use of underground aquifers which in turn risk being over-exploited and exhausted.

1.8. Although national legislation gives priority to human use and urban supplies, in many parts of southern Europe the problem now extends beyond agriculture. Difficulties and restrictions also surround domestic use, and bring a corresponding drop in quality of life with regard to a vital commodity, as well as hitting service industries that are economically vital to the area concerned, such as tourism. Some southern cities even have plans to bring in supplies by water tanker.

1.9. It is common knowledge that lack of rain is a major cause of the desertification of many southern EU regions, because of the loss of plant cover caused by drought and forest fires, and the resultant soil erosion. The time has come to address these issues directly, and not simply - as has been the case so far - as a side issue.

1.10. Community water policy has hitherto focused on the environmental quality of water, and the bulk of Community legislation addresses this concern. However, the problem now extends beyond the pollution of bathing water and industrial pollution of rivers, underground aquifers or fishing waters; the problem now is not quality but quantity, and concerns the preservation and territorial distribution of water.

1.11. As with all dwindling resources, the Member States must put in place policies to ensure the supply of this basic commodity to all their citizens: for economic activities such as agriculture; for domestic consumption, by guaranteeing public supplies; and in the natural environment, by countering the steady desertification of southern Europe.

1.12. Until that time, however, drastic action is needed to alleviate as far as possible the dreadful social, economic and environmental impact of the drought which has beset Southern Europe for four years now.

2. General considerations

THE COMMITTEE OF THE REGIONS:

2.1. Welcomes the fact that the European Commission's work programme for 1995 attaches fundamental importance to the adoption and implementation of new and revised legislation on water resources.

2.2. Reminds the institutions and all the relevant socio-economic players that water has become scarce in large areas of the EU, and that resolute policies are needed concerning the rational management, preservation and storage of this natural resource, in all the forms in which it is used and consumed.

2.3. Calls on the EU institutions and the Member States to recognize the need to manage catchment basins in a coordinated manner. This will require cooperation between the regions and the Member States.

2.4. Urges the institutions to continue their work on protection against climate change, by taking decisive action to tackle the human-related causes, as in the policies to control greenhouse gas emissions and substances which deplete the ozone layer.

3. Measures in the agriculture sector

The Committee of the Regions emphasizes that the European Union has no powers in the field of water-resources policy and that Community measures can only be implemented under Article 130a ff. of the EC Treaty.

3.1. Calls on the Commission to promote the adoption of specific Community legislation on drought, covering its economic, social and environmental implications and building on the principles set out in the present Opinion.

3.2. Calls on the Commission to appoint a scientific study commission on drought, under the fourth framework programme, working in consultation with specialist institutes, universities and recognized experts in the field of climate analysis.

3.3. The EU institutions should promote all requisite measures to foster the supply, preservation and rational use of water for agricultural use. Accordingly they should promote the construction of reservoirs, hydraulic works and desalination plants, the re-use of waste waters, and the sinking of wells, without prejudice to the maintenance of aquifers. All EU authorities should also promote techniques for saving irrigation water, by improving channels, the use of drip irrigation, and the introduction of consumption meters and limits.

3.4. In affected areas of the EU, a state of drought should be declared when rainfall figures drop 50 % below the average for a specified period. The length of this period, and the criteria to be used, could be decided after a Commission study.

3.5. When a state of drought is declared, the Commission should examine the possible economic damage, and all the Community institutions should lay down specific support measures based on the relevant Treaty Articles, such as Article 130b. The losses should be calculated by such methods as the examination of macroeconomic indicators, notably the drop in output compared with the average output over the preceding five years and the number of jobs lost. Job losses in ancillary industries, such as processing and agricultural services, should also be calculated.

3.6. Similarly, no penalties should be applied for exceeding the maximum areas earmarked for arable crops when water shortages oblige the farmer to plant low water consumption crops, provided that actual production does not exceed the average yield of the areas earmarked for arable crops.

3.7. With regard to crops whose common market organization provides for grubbing-up premiums, preference should be given to crops in drought areas. If the crop is lost through natural causes, it should be treated for compensation purposes as if it had been voluntarily grubbed up.

3.8. In stockfarming areas where a state of drought is declared, temporary aid should be introduced to enable farmers to purchase feedingstuffs to replace the natural pasturage and fodder lost as a result of the water shortage.

3.9. Since drought worsens a farmer's debt position, the relevant authorities should promote ways of renegotiating the debt by consolidating loans, reducing interest and extending repayment periods.

3.10. With regard to the consequences of the drought for sectors of the economy which depend on agriculture, legislative steps should be taken to provide access to soft loans and facilitate the import of raw materials from other areas in order to sustain the activity of the processing industry. In the event of a prolonged drought, these credit lines should be extended to traders and ancillary services.

4. Environmental measures

4.1. As well as maintaining current water quality policies, the institutions should step up their reafforestation programmes and measures to combat forest fires and erosion.

4.2. These programmes should give priority to restoration of plant cover alongside river headwaters and catchment areas, since this prevents overfilling of reservoirs.

4.3. EU environmental education programmes should include special campaigns on water saving and water consumption.

4.4. Geotechnical studies designed to locate and inventory ground-water deposits should be stepped up, with special reference to capacity and recommended exploitation level.

5. Measures concerning domestic water supplies

5.1. The Commission should work with Member States, regions and consumer organizations to promote European campaigns on rational use of water for domestic consumption.

5.2. Similarly, and in accordance with the subsidiarity principle, the relevant authorities should invest in the upkeep of supply and distribution networks, in order to minimize any water losses other than natural evaporation and seepage.

5.3. Achieving the goals of this Opinion will be best done through an environmental strategy for the future. The limits of the regional and local environment must be taken into consideration. To overcome those problems referred to, it is necessary to have a long-term strategy.

Done at Brussels, 19 July 1995.

The Chairman of the Committee of the Regions

Jacques BLANC