"W*§s 
COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 24.03.1998 
COM(1998) 173 final 
REPORT FROM THE COMMISSION TO THE COUNCIL 
on the implementation of the European Forestry 
Information and Communication System (Efics) established by Council 
Regulation (EEC) No 1615/89 
Proposal for a 
COUNCIL REGULATION (EC) 
amending Council Regulation (EEC) No 1615/89 establishing a European 
Forestry Information and Communication System (Efics) 
(presented by the Commission) 

Report to the Council on the implementation of the European Forestry 
Information and Communication System (Efics) established by Council 
Regulation (EEC) No 1615/89 
1. Efics's objectives 
The European Forestry Information and Communication System (Efics) was established 
by Council Regulation (EEC) No 1615/89 of 29 May 19891 and extended by Council 
Regulation (EC) No 400/94 of 21 February 19942. 
The objectives of the System are defined in Article 1 of the Regulation, which stipulates 
that: 
- the purpose of the System is "to collect, coordinate, standardise and process data 
concerning the forestry sector and its development". 
- The System is created "in order to collect comparable and objective information on 
the structure and operation of the forestry sector in the Community, and thus facilitate 
implementation and monitoring of the Community forestry provisions in force"3. 
Article 2 also stipulates that the System "shall take account of existing data, and in 
particular statistics compiled by the Statistical Office of the European Communities, and 
shall make use of information available in the Member States, in particular data 
contained in national forestry inventories, and of any database accessible at Community 
and international level". 
2. Implementation of the System during 1989-97 
2.1 Initial period (1989-92) 
A small number of measures were carried out during the initial period of application of 
the Regulation. An initial, limited, study was launched to evaluate the differences in the 
forestry inventory procedures in the Member States. It demonstrated the lack of 
harmonisation in the field of forestry statistics. However, given the lack of detail in the 
study, it was not possible to draw any operational conclusions on steps to be taken to 
improve the situation. 
Preparatory work was also carried out to evaluate the status of forestry data available in 
the different Member States. It was found that there were no data at all for a large number 
of activities in the sector. 
1 OJL 165, 15.6.1989, p. 12. 
2 OJ L 54. 25.2.1994, p. 5. 
The main measures referred to are the subject of the following Regulations and Decisions: Regulation 
(EEC) No 1610/89 laying down provisions for implementing Regulation (EEC) No 4256/88 as regards 
the scheme to develop and optimally utilise woodlands in rural areas in the Community; Regulation 
(EEC) No 2080/92 instituting a Community aid scheme for forestry measures in agriculture; 
Regulation (EEC) No 867/90 on improving the processing and marketing conditions for forestry 
products; Decision 89/367/EEC setting up a Standing Forestry Committee; Regulation (EEC) 
No 2157/92 amending Regulation (EEC) No 3528/86 on the protection of the Community's forests 
against atmospheric pollution; Regulation (EEC) No 2158/92 on protection of the Community's forests 
against fire. 
1 
In view of the modesty of the results obtained in the initial period of application, the 
Regulation had to be extended for the period 1993-97. 
2.2 Second period (1993-97) 
At its meeting on 10 June 1994 the Standing Forestry Committee (SFC) identified five 
main fields which it felt should form an initial framework for the Efics. They were: 
- forestry resources (including the parameters sustainable development, biodiversity, 
etc) 
- forest products (the timber industry) 
- forest ownership structure 
- forestry activities at Community level 
- the organisation and objectives of and means for implementing forestry policies in the 
Member States. 
Several operations forming part of the above objectives were then undertaken by the 
Commission: 
- The collection, verification and publication by Eurostat of forestry statistics as part of 
Efics ("Forestry statistics" document published in 1995 for 1985-91 and under 
preparation for 1992-96). 
- The implementation of measures in the field of remote sensing applied to the forestry 
sector, in connection with work undertaken by the S AI (department for remote sensing 
applications) at the Joint Research Centre (JRC) in Ispra as part of the FIRS (Forest 
Information from Remote Sensing) project4. 
- The creation, and participation in the work, of the Intersecretariat Working Group 
(IWG) bringing together several international organisations working in the forestry 
statistics field (DG VI, Eurostat, the Economic Commission for Europe of the United 
Nations (UN-ECE), the UN Food and Agriculture Organisation (FAO), the 
Organisation for Economic Cooperation and Development (OECD) and the 
International Tropical Timber Organisation (ITTO)) and intended to guarantee 
cooperation between the organisations and complementarity of their activities so as to 
avoid any duplication of work. This cooperation has enabled a questionnaire to be 
drawn up common to Eurostat, the FAO and the UN-ECE for the collection of 
statistical data on the production of and trading in forest products. 
- Collaboration with the UN-ECE and the FAO in the work undertaken by those bodies 
to assess temperate and boreal forest resources for the year 2000 (TBFRA-2000, part 
Launching of a study on the application of remote sensing to the monitoring of changes in forest cover 
and the structural diversity of forests. Entrusted to a consortium led by GAF (Gesellschaft fur 
Angewandte Fernerkundung mbH), the study was part of the scientific and technical support activities 
for Community policies and should be completed by August 1988. 
Launching by the Centre for Earth Observation (CEO) of the SAI at Ispra JRC as part of the Forest 
Monitoring in Europe with Remote Sensing (FMERS) project, of a study intended to develop and 
implement methods aimed at deriving from remote sensing data certain information linked to forests 
(surface, structure and volume). 
of the overall assessment FRA-2000), which included Community financial assistance 
to the analyses carried out by the UN-ECE into the sustainable development of forests 
(implementation of Resolution No 1 of the ministerial conference on the protection of 
forests in Europe (Helsinki, 1993) and integration of the sustainable management 
criteria and indicators into forestry inventories). 
In addition to the above work a second comparative study on forestry inventory systems 
in Europe was carried out by the European Forestry Institute (EFI). This had more 
ambitious objectives than the first and was allocated more resources. It was intended to 
make a critical inventory of the quality and comparability of statistical data resulting 
from the different protocols used to measure forestry resources in Europe. It was 
completed at the end of January 1997. 
An initial report describing and comparing the forestry inventory systems in the 
European Union and several other European countries5 was published by the 
Commission in 19976. A second report, issued at the end of the study in February 1997, 
proposed several scenarios for action to be undertaken if Europe was to have reliable and 
comparable statistics on forestry resources. The scenarios were based on a comparison of 
the national inventories carried out during the first stage and on the results, also noted in 
the report, of an inquiry intended to assess the needs of users with regard to forestry 
resources statistics and of a simulation study estimating the discrepancies produced in 
such statistics by the disparities between the data collection and processing procedures 
used in the countries covered by the study7. 
In addition, a number of measures undertaken outside the scope of the Efics Regulation 
have already supplied results the use of which could help to implement the System. 
Without encroaching on those measures, Efics could be a suitable method for 
disseminating and following up their results. The measures were: 
- Work carried out under Council Regulation (EEC) No 3528/86 on the protection of 
the Community's forests against atmospheric pollution which is used for the 
preparation of an annual report on the state of health of Europe's forests. The work 
comprises a periodical inventory of damage caused to forests by observing more than 
70 000 trees from about 3 400 observation points covering all European forests and 
the intensive monitoring of about 500 observation plots in all Member States. 
- The system implemented under Council Regulation (EEC) No 2158/92 on protection 
of the Community's forests against fire. This covers 319 NUTS II or III regions in the 
six Member States containing the fire-risk zones (Germany, Spain, France, Greece, 
Italy and Portugal) and contains a description of the 460 000 fires studied between 
1985 and 1995. 
- The report prepared in application of Council Regulation (EEC) No 2080/92 of 
30 June 1992 instituting a Community aid scheme for forestry measures in agriculture. 
Iceland. Liechtenstein, Norway, Switzerland, the Czech Republic, Hungary and Poland. 
"Document" series, 2 volumes, 1328 pp.; ISBN 92-827-9846-1. 
The simulation demonstrated, for example, that if the definitions used in Luxembourg and in the 
United Kingdom were applied to the determination of the forest area of Finland there would be a 14% 
discrepancy between the two calculated figures. 
V 
- A description of the forestry research projects financed by the Commission under the 
Framework Programmes for Research and Technological Development. 
2.3 Missing information and difficulties and obstacles encountered during 
implementation 
Alongside the problems already mentioned - lack of European harmonisation of forestry 
statistics and the availability of some data - the main difficulties encountered in 
implementing the Regulation to date have been the reservations expressed by Member 
States in taking the measures required to improve the quality of international data (lack of 
personnel and funding). 
Although there has been significant progress in the field of forestry resources, work 
carried out in the other areas identified as priorities by the SFC in 1994 have yielded little 
success because of the above difficulties. 
3. Guidelines for implementing the System during the period 1998-2002 
3.1 The challenges 
Recent developments and discussions on forests, their products and markets, particularly 
with regard to the concept of sustainable management, have confirmed that existing 
statistical data in the sector are not reliable or comparable enough. The economic, 
environmental and social significance of forests is currently receiving increased attention 
and the data available from national inventories are not adequate for meeting challenges 
such as: 
- the action to be taken as a result of the European Parliament's legislative initiative (the 
Thomas Report). In paragraph 13 of one of its resolutions it asks the Commission to 
make provision for "the effective implementation of the forestry information and 
communication system (Efics)" and for the forestry sector to "discuss forthwith the 
usefulness of a European forestry inventory by state and by region which would 
provide the Union with the necessary information to continue to ensure sustainable 
management of forestry resources"; 
- the contribution which must be made to the work of the European Environmental 
Agency (EEA) on the report on the state of the environment in Europe (the Dobris 
assessment) with regard to the forestry aspects (resources, multi-function role of 
forests); 
- the evaluation that has to be made of future trends in the timber and derived products 
market, taking account of the impact on the market of the liberalisation of 
international trade, and of the resulting forestry forecasts that can be made at Union 
level; 
- the necessary reinforcement of the multi-function role of the forest with its impact on 
rural development and employment policies. 
After the accession of Austria, Finland and Sweden Europe became the second-largest 
producer and consumer of forestry products in the world and it must therefore have a 
statistical tool enabling it to give reliable information on at least the most important data. 
ç 
That need can only be underlined by the likely accession in the near future of six new 
countries from central, eastern and Mediterranean Europe, which will significantly 
increase our forestry resources and the potential consumption of forestry products. 
In addition, suitable information needs to be available for current discussions on 
ecological certification, on use of timber compatible with the environment (e.g. as a 
renewable energy resource) or as a building material with thermal and sound insulation 
properties. 
3.2 Topics to be considered 
The Commission is proposing to establish an indicative working programme for the next 
few years which will concentrate on the following: 
- forestry resources, 
- forest ownership structure, 
- non-commercial forest values, 
- Community forestry measures, 
- forestry products (wood as a structural material ("mechanical") and other forestry 
products). 
The Commission is aware of the amount of work required on those topics. It would be 
unrealistic to think that all the problems they contain can be resolved during the period 
covered by the Regulation. Efics's implementation can only be gradual; it is a process 
whose regular progress must be guaranteed. 
3.3 The proposed working programme 
The working programme proposed by the Commission is summarised in the annexed 
Table, which is based on the priorities mentioned above. It has already been presented to 
the SFC and the Eurostat "forestry statistics" working party at their joint meeting in 
Luxembourg on 21 July 1997, where, although the meeting stressed that some points still 
required discussion in more detail, it was on the whole given a positive reception. It will 
be re-presented to the SFC for approval in accordance with the procedure set out in the 
new Regulation. 
Implementation of the measures in the working programme will require the maintenance 
and, if necessary, reinforcement of the existing cooperation with other international 
institutions active in the forestry statistics field, particularly within the intersecretariat 
working group on forestry statistics, so that the work of the various institutions can be 
coordinated and duplication avoided. 
Measures to be undertaken on the development of nomenclatures, the harmonisation of 
existing data or the coordinated development of new data (e.g. on biodiversity) will be 
discussed within an Efics working party whose members can be taken from the SFC and 
the "forestry statistics" working party. The working party will also have to decide which 
of the working programme's measures should be given priority. 
C 
The sectoral studies and analyses (forestry product markets, statistics on foreign trade, 
etc) which the Commission intends to launch must link the various departments 
concerned (Eurostat, DG III, DG VI, etc). In more general terms, it will be necessary to 
specify during the measures' initial implementation phases the responsibilities of the 
various Commission departments; these are currently only mentioned in indicative terms 
in the working programme and only for certain measures. 
It is expected that the working programme will permit the development over the course 
of the next few years of the most important measures and contribute to the broader 
discussion of forestry strategy in which Efics will be called on to play a role. 
> 
EFICS: INDICAT IVE WORKING PROGRAMME 
Measure Type of work 
<*) Creation of a 
database 
Improvement of 
data and 
harmonisation Feasibility study 
Design of the database and 
inputting of data already 
available 
Inputting new information 
Forestry resources 
nomenclature (timber) Launch of a computer-based project 
Forestry- resources: Eurostat and/or UN-ECE data 
Forestry products and trade: Joint Eurostat/UN-ECE/FAO questionnaire and historical data 
(COMEXT) 
Forest ownership: Information collected by Eurostat and UN-ECE 
Community forestry measures: 
- Report on Regulation (EEC) No 2080/92 instituting a Community aid scheme for forestry 
measures in agriculture 
- Annual reports on Regulations concerning protection against atmospheric pollution and 
fire 
- Data on research measures and COST-type activities 
Other information: 
- Addresses of contacts in the Member States possessing the results of national inventories 
or direct links with information servers 
- links with other international databases managed by governmental organisations (UN-
ECE, FAO, etc) 
Geo-referenced information and/or maps resulting from cooperation with the institute for 
remote-sensing applications as part of the FIRS project, or CORINE Land Cover extracts 
Results of specific analyses linked to sectoral requirements 
Development of a common nomenclature for the most important features (related to forestry 
area, changes, species, volume and its variation), with study of the possibility of using for 
Efics the definitions adopted as part of TBFRA-2000. Study 
Services 
Internal DG VI work in liaison 
with the JRC at Ispra, the EEA, 
etc 
Services 
Discussions within an ad hoc 
Efics working party under the 
SFC's control, plus 
collaboration with the IWG and 
consideration of the work on 
the assessment of temperate and 
boreal forests for the year 2000 
(TBFRA-2000). 
EFICS: INDICATIVE WORKING PROGRAMME 
Measure Type of work 
Improvement of 
data and 
harmonisation 
(continued) 
-o Forestry resources 
nomenclature (goods and 
services other than timber 
production) 
Forest ownership nomenclature 
Conversion of national data on 
forestry resources (timber) 
Forestry products and trade 
Extension of harmonisation Development of a common nomenclature of goods and services other than timber production 
Development of a common nomenclature for forestry ownership. Determine whether the 
nomenclature chosen by TBFRA 2000 meets Efics's needs, if necessary agree on 
nomenclature to be adopted. 
Establishment of conversion factors for national data on forestry resources (timber) so that 
they can be aligned on the European definitions adopted (application of the factors will be an 
intermediate step between the adoption of the new nomenclature and its implementation in 
the national inventories). 
Launch of a study on trade statistics for roundwood and forestry industry products aimed at: 
- analysing in detail the various sources of foreign trade statistics in the Union and EFTA 
(joint FAO/UN-ECE/Eurostat questionnaire, Eurostat's COMEXT database, UN Statistics 
Office's COMTRADE database, etc), 
- determining the reasons for the differences and incompatibilities between the data in these 
sources, 
and including: 
- an examination of the impact on data quality of the introduction, from 1993, of the 
Intrastat system, 
- proposals based on the analysis and aimed at improving the reliability of trade statistics in 
the forestry sector. 
Extension of harmonisation to a larger number of factors (if the gradual approach chosen for 
the harmonisation of the first ten factors proves effective) 
Monitoring of the technological developments which could help to implement an "Efics 
inventory" based on remote sensing, possible launching of studies in that field Analyses within Efics working 
part)' under the SFCs control, 
plus collaboration with the 
IWG and consideration of the 
TBFRA-2000 work. 
Analyses within Efics working 
part>' under the SFCs control, 
plus collaboration with the 
IWG and consideration of the 
TBFRA-2000 work. 
Internal study in each Member 
State with coordination by the 
Efics working party and 
financial support from the 
Commission if necessary 
Study 
Discussions within the Efics 
working party. 
Internal Commission work. ; 
Studies f 
EFICS: INDICATIVE WORKING PROGRAMME 
Data collection in 
the Member 
States 
0 Measure Type of work 
Forestry resources and forest 
ownership 
Community measures 
Publications 
Establishment of a 
communication network 
Specific studies Collection in the Member States of supplementary data on forestry resources and forest 
ownership, taking account of established nomenclature. 
Provision by the Member States of supplementary information on measures taken in favour of 
forests in Structural Funds' regional programmes (Objectives 1, 5(b) and 6, ERDF, ESF, 
Regulation (EEC) No 867/90. 
Annual publication of the document "Forestry statistics". 
Establishment, in close collaboration with the Union's forestry industry and other bodies 
concerned, of a communication network in the forestry sector with the aim of encouraging the 
rapid and efficient exchange of information. 
Study of the operation of the timber sector: identification of the structure and operation of 
the timber markets, mainly the roundwood market, with examination of regional flows. In 
a second phase, extension of the study to derived products (wood as a structural material 
("mechanical") and other forestry products). 
Analysis of the wood/paper/printing sector aimed at providing detailed economic and 
strategic information on the wood processing, paper and board manufacturing and 
processing, and printing and publishing industries. 
Other specific analyses linked to the forestry sector and connected industries, in particular 
in relation to the central and eastern European countries. Internal work within Member 
States with possible part-
financing by the Commission 
of additional work required for 
data collection. 
Internal work within Member 
States with possible part-
financing by the Commission 
of additional work required for 
data collection. 
Collection, verification and 
publication of forestry statistics 
Pilot DG III/DG IV, industry, 
etc, project. 
Studies and services (DG II/DG 
VI collaboration) 
Proposai for a 
COUNCIL REGULATION (EC) No 
amending Council Regulation (EEC) No 1615/89 
establishing a European Forestry Information and Communication System 
(Efics) 
<ia 
EXPLANATORY MEMORANDUM 
1. The Community measure comprising the establishment of a European Forestry 
information and Communication System (Efics), as provided for in Regulation (EEC) 
No 1615/89, extended for the first time by Regulation (EC) No 400/94 and based on 
Article 213 of the Treaty, expires on 31 December 1997. The Commission is 
presenting to the Council, as provided for in its 1997 agriculture and fisheries 
programme, a proposal for the measure's extension for a further five years. 
2. The objective of the System is to collect, coordinate, standardise and process data 
concerning the forestry sector and its development, in order to compile comparable 
and objective information on the structure and operation of the forestry sector in the 
Union and to facilitate the implementation and monitoring of Community provisions 
in force in the matter. 
3. During the past period of application of the Regulation substantial progress has 
been made in several fields: 
- European forestry statistics are again being regularly collected, verified and 
published by Eurostat. 
- Several research projects have been launched on the application of remote sensing 
to the forestry sector; these are independent of comparable projects in the R & TD 
Framework Programme but do not duplicate them. 
- An In ter secretariat Working Group (IWG) has been created linking several 
international organisations active in the forestry statistics field with the aim of 
establishing cooperation to prevent duplication in the activities of the 
organisations. Its work has resulted in the preparation of a joint questionnaire for 
Eurostat, the FAO and UN-ECE for the collection of statistical data on production 
of and trading in forestry products. 
- A critical inventory has been produced of the quality and comparability of 
statistical data obtained from the various forestry resource inventories produced by 
the Member States and other European countries; the analysis has helped to 
establish several ways to improve the future quality of the data. 
4. The major difficulties encountered during the period of application of the 
Regulation have been: 
- The lack of harmonisation between Member States in the field of forestry statistics; 
there were considerable differences in terms of the inventory, data sources, 
nomenclature and methods of analysis and organisation. 
- The total absence of data for a great many activities in the sector. 
- Reservations expressed by Member States concerning national implementation of 
the measures required to improve the quality of international data, mainly because 
of a lack of personnel and funding. 
<12-
5. Despite the difficulties and taking account of the progress already made, the 
Commission and the members of the Standing Forestry Committee (SFC) believe that 
a decisive stage has been reached in the implementation of the System and that the 
measure must be continued with a number of activities of a high added-value for the 
operation of the System being strengthened or launched. In general terms, forestry 
information requirements are still urgent and have in fact been accentuated by the 
following: 
- Accession to the Union in 1995 of Austria, Finland and Sweden; this has 
considerably increased the relative significance of the forestry sector in the Union's 
economic activities. 
- Community commitments entered into at the ministerial conferences on forest 
protection (Strasbourg 1990 and Helsinki 1993). The Community and Member 
States have undertaken to cooperate in the collection of data on the protection and 
sustainable management of forests in Europe. 
- The increasing worldwide responsibilities of the Union in the protection and 
sustainable management of forests, reflecting its commitment to implementing the 
recommendations of the intergovernmental group on forests (following on from the 
United Nations Conference on Environment and Development, Committee on 
Sustainable Development), particularly as regards the integration of the criteria and 
indicators for the sustainable management of forests into forestry inventories, the 
harmonisation of definitions and the international coordination of work on 
assessing forestry resources. 
- The forestry strategy which the Commission is obliged to prepare as a result of the 
European Parliament request expressed in its resolution of 30 January 1997. The 
resolution also underlines the importance of Efics in that context, namely as an 
information tool on Union forestry activities. That importance was also noted in the 
Economic and Social Committee non-initiative opinion of 24 April 1997 on the 
situation and problems of forestry in the European Union, and in the draft opinion 
of the Committee of the Regions on the management, utilisation and protection of 
the Union's forests. 
6. The measures which the Commission is proposing to undertake during the next few 
years have been laid out in a working programme covering a number of priority 
topics. The plan had already been presented to the SFC and the Eurostat working party 
on forestry statistics and approved by them at their joint meeting held on 21 July 1997 
in Luxembourg. It will be re-presented to the SFC for approval under the rules 
specified in the new Regulation. 
Implementation of the measures contained in the working programme will require the 
maintenance and, if necessary, reinforcement of the existing cooperation with Member 
States and with other international institutions active in the forestry statistics field, 
particularly in the IWG, so as to coordinate and supplement the work of the different 
bodies and avoid duplication. 
•4-3 
At the SFC meeting on 21 July a general consensus was reached in favour of 
extending the Regulation. 
7. Extension of the measure respects the principles of subsidiarity and 
proportionality: 
- Responsibility for the measure is shared by the Community and the Member States. 
Although it is the Community's duty to collect, process and disseminate 
comparable and objective data on the European forestry sector, it cannot do this 
unless the Member States are willing to undrtake the work to improve the 
comparability of the data obtained from the forestry inventories. Given the work 
needed to realise that, action by the Member States alone will not be enough and 
will have to be combined with that of the Community. Coordination at Community 
level and exchanges of experience between the Member States will help to reduce 
the total cost of the measure. 
- The development of common European definitions and nomenclatures could not be 
undertaken by the Member States alone. Community activities in that field 
coordinated with those of other international bodies will supply a definite added 
value to Member States' work. 
- If the initiative had been left to the Member States the consequence of inactivity on 
the part of the Community would have been the continued lack of reliable data on 
the European forestry sector or, in some cases, the lack of any data at all. That 
situation would not be satisfactory since both the Member States and the 
Community institutions acknowledge that such data are an invaluable aid both 
internationally and throughout Europe for sustainable development (post-Rio and -
Helsinki process) and within the Community to support the measures presented in 
favour of forests and to prepare the future forestry strategy. 
- The financial framework of the Regulation remains unchanged. The reference 
amount, ECU 3 900 000, stays the same. During 1989-97 the appropriations were 
under-used (ECU 600 000) because activities were concentrated on the analysis of 
the existing quality of forestry data and of methods for improving it. The amount 
remaining for 1998-2002 is relatively modest given the objectives pursued and the 
cost of collecting and processing forestry information in the Member States. In 
addition to the creation of the information system, Community assistance will be 
concentrated on supporting Member States in their efforts to develop appropriate 
processes for improving the comparability, reliability and comprehensiveness of 
the data on a European scale. 
- As the difficulties encountered during the past period of application of the 
Regulation have shown, the process of creating the System is a slow and complex 
one. The five-year extension is not disproportionate given the size of the tasks to be 
accomplished. 
8. The action is consistent with the Union's agricultural, structural and 
environmental policies. It meets the requirements of those policies as well as being an 
44 
important information and evaluation tool, making available a number of indicators 
and parameters on Europe's natural resources and their environment. 
The measure does not mean that the Community must implement new procedures for 
collecting data, it supplements measures already undertaken as part of the Union's 
statistics policy. 
4.5-
Proposal for a 
COUNCIL REGULATION ŒC) No 
amending Council Regulation (EEC) No 1615/89 establishing a European 
Forestry Information and Communication System (Efks) 
THE COUNCIL OF THE EUROPEAN UNION, 
Having regard to the Treaty establishing the European Community, and in particular 
Article 213 thereof, 
I laving regard to the proposal from the Commission1, 
Whereas the period of application of Council Regulation (EEC) No 1615/89 of 29 
May 1989 establishing a European Forestry Information and Communication System 
(Efics)2, as amended by Council Regulation (EC) No 400/94 of 21 February 19943, 
expires on 31 December 1997; 
Whereas several Community measures have already been undertaken to establish the 
system; whereas they are mainly based on an analysis of the reliability and 
comparability of the data obtained from Member States' forest inventories and on 
improving coordination of the statistical work undertaken by international 
organisations on the forest sector; whereas that work has demonstrated the timeliness 
of the process initiated by the Community and the benefits which the latter can expect 
from the continuation of that work; 
Whereas the system cannot be implemented unless the Member States take 
appropriate measures to that end; whereas such measures must be specified in a 
working programme prepared by the Commission and presented to the Standing 
Forestry Committee; 
l 
2 OJ L 165, 15.6.1989, p. 12. 
3 OJ I. 54, 25.2.1994, p. 5. 
<u 
Whereas the implementation of Community policies, the European Union's 
international commitments as part of the post-Helsinki process and to the United 
Nations General Assembly and the work of the European Environmental Agency 
require that the measures to be taken to improve the quality of international forestry 
data and to improve the use of the computer and remote-sensing techniques most 
suitable for disseminating those data, should be reinforced; 
Whereas also the European Parliament Report No A4-0414/96 of 18 December 1996 
on the European Union's forestry strategy stresses that the Commission must ensure 
that Efics is effectively implemented; whereas the own-initiative opinion of the 
Economic and Social Committee of 24 April 1997 on the situation and problems of 
forestry in the European Union and the potential for developing forestry policies notes 
the importance of improving information in the forestry sector and the contribution 
that Efics could make to that, in particular by including data on forest protection; 
Whereas the above Regulation should therefore be extended and amended to take 
account of the above requirements, 
HAS ADOPTED THIS REGULATION: 
Article 1 
Regulation (EEC) No 1615/89 is hereby amended as follows: 
(1 ) Article 1 is replaced by the following: 
"Article 1 
In order to collect objective, reliable and pertinent information on the structure 
and operation of the forestry sector in the Union, and thus: 
improve consideration of the interests of the forestry sector in 
international discussions; 
facilitate the implementation of measures in favour of the forestry 
sector under existing Community policies; 
d7-
facilitate implementation of Member State policies relating to forestry 
or having an impact on the forestry sector; 
authorise access by the general public to information on the European 
forestry sector, 
a European Forestry Information and Communication System (Efics), 
hereinafter called 'the System', is hereby set up, the objective of which is to 
collect, coordinate, standardise and process information concerning the 
forestry sector and its development." 
(2) Article 3 is replaced by the following: 
'Article 3 
The Commission shall set up the System in close cooperation with the 
Member States and international bodies active in the field of European forestry 
statistics during an initial four-year stage starting on 1 January 1989 and 
ending on 31 December 2002. 
To improve the comparability and completeness of the data at a European 
level, implementation of the System may require that Member States take 
measures aimed at adjusting or supplementing their procedures for the 
collection of data, in particular where the evaluation of forestry resources and 
the monitoring of the timber and forestry products market are concerned. 
The Commission shall, where appropriate, support measures undertaken by 
Member States and other international organisations such as the United 
Nations Food and Agriculture Organisation (FAO) and the Economic 
Commission for Europe (UN-ECE) and intended to meet the specific 
requirements for setting up the System." 
(3) The following Article 3a is inserted: 
^8 
"Article 3 a 
( 1 ) The Commission shall present to the Standing Forestry Committee, set 
up by Decision 89/367/EEC4 for a period extending to 31 December 
2002, a working programme detailing the measures which must be 
taken by Member States and the Commission with a view to 
establishing the System. 
(2) The Committee shall deliver its opinion on the working programme 
within a time limit to be fixed by its chairman on the basis of the 
urgency of the matter in question. The opinion shall be by a majority as 
provided for in Article 148(2) of the Treaty for the adoption of 
decisions which the Council is requested to take on a proposal from the 
Commission. Member States' votes in the Committee shall be weighted 
as set out in the said Article. The chairman shall not have a vote. 
(3) (a) The Commission shall adopt the envisaged measures where 
they are in accordance with the opinion of the Committee. 
(b) Where the envisaged measures are not in accordance with the 
opinion of the Committee, or in the absence of an opinion, the 
Commission shall present the Council without delay with a 
proposal on the measures to be taken. The Council shall decide 
on the proposal by qualified majority. 
If the Council has failed to adopt the measures within a period of three months 
of being asked to do so, the Commission shall adopt the proposed measures 
and implement them immediately." 
(4) Article 4 is replaced by the following: 
"Article 4 
4 OJ L 165, 15.6.1989, p. 14. 
49 
The reference amount for implementing the System is ECU 3 900 000 for the 
period 1989-2002. 
The annual appropriations shall be authorised by the budgetary authority 
within the limits of the available budget." 
(5) Article 5 is replaced by the following: 
"Article 5 
The Commission shall report to the Council, before 1 January 2003, on the 
implementation of the System and the results obtained. In the light of that 
report it shall, where necessary, make proposals to the Council on the future 
organisation and operation of the System." 
Article 2 
This Regulation shall enter into force on the third day following its publication in the 
Official Journal of the European Communities. 
It shall apply from 1 January 1998. 
This Regulation shall be binding in its entirety and directly applicable in all Member 
States. 
Done at , For the Council 
The President 
-&0 
FINANCIAL STATEMENT 
1. 'TITLE OF OPERATION 
Extension of the Community measure establishing a European Forestry Information 
and Communication System (Efics). 
2. BUDGET HEADING INVOLVED 
B2-5150 Forests 
3. LEGAL BASIS 
Article 213 of the Treaty. 
Council Regulation (EEC) No 1615/89 of 29 May 1989 establishing a European 
forestry Information and Communication System (Efics)1, as amended by Council 
Regulation (EC) No 400/94 of 21 February 19942, expiring on 31 December 1997. 
The purpose of the proposal is to extend the Regulation by five years. The period 
covered by the Regulation would then be 1989-2002. 
4. DESCRIPTION OF OPERATION 
4.1 General objective 
Regulation (EEC) No 1615/89 was adopted as part of the implementation of the 
"Forestry action programme" launched by the Commission in 1988. The system 
introduced by the Regulation was regarded as a tool indispensable to the optimum 
implementation of the forestry policy measures which the programme proposed to 
implement throughout the Community. 
The objective of the system is to collect, coordinate, standardise, process and 
disseminate data concerning the forestry sector and its development, in order to collect 
objective, reliable and pertinent information on the structure and operation of the 
forestry sector in the Union, and thus: 
improve consideration of the interests of the forestry sector in international 
forums, such as the Convention on biodiversity, or in forums related to forest 
protection and climate change; 
facilitate the implementation of measures in favour of the forestry sector under 
existing Community policies (CAP accompanying measures, the Structural 
Funds, environment, industry); 
().) L 165. 15.6.1989, p. 12. 
O.I L 54,25.2.1994, p. 5. 
facilitate implementation of Member States' forestry policies; 
allow more public access to information on European forests. 
To achieve those objectives, the Commission proposes to undertake the following 
measures over the next few years: 
the creation, maintenance and feeding of a database (feasibility study, design 
and inputting of data already available); 
studies to develop common noemclatures for forestry resources (timber, goods 
and services other than timber production); 
studies on the conversion of national data on forestry resources (timber); 
study on the inputting of new data into the database (geo-referenced information 
and/or maps, results of specific analyses); 
specific studies (statistics on trade in roundwood and forestry industry products, 
operation of the timber market and specific analyses linked to sectoral needs). 
In addition to those measures, which are entirely the responsibility of the Community, 
it is planned that the Commission will contribute to the financing of projects in the 
Member States to aid the conversion of national data on forestry resources (timber) 
and collection by Member States of supplementary information on forestry resources, 
forest ownership and measures in favour of forests taken as part of the Structural Fund 
regional programmes. 
Lastly, it is planned to make a financial contribution to work the objectives of which 
are compatible with those of Efics and which other international institutions active in 
the field of forestry statistics will be implementing. 
4.2 Period covered and arrangements for renewal or extension 
First period of 4 years (Regulation (EC) No 1615/89): 1.1.1989-31.12.1992 
Second period of 5 years (Regulation (EC) No 400/94): 1.1.1993-31.12.1997 
Proposed extension by 5 years: 1.1.1998-31.12.2002 
5. CLASSIFICATION OF EXPENDITURE 
5.1 Non-compulsory expenditure 
5.2 Differentiated appropriations 
6. TYPE OF EXPENDITURE 
See point 7. 
-it2-
7. FINANCIAL IMPACT 
7.1 Method of calculating total cost of operation 
For actions in Member States part-financed by the Commission (support for the 
conversion of data and the collection of supplementary data) a part-financing 
rate up to a maximum of 50% of the total cost is planned. 
The rate of Community part-financing for projects presented by other 
international institutions will be studied on a case-by-case basis. 
The financing of other measures will be 100% for the account of the 
Community. 
7.2 Itemised breakdown of cost 
Measure 
Studies and services 
Contributions to 
Member State expenses 
Contribution to 
international 
organisations' expenses 
TOTAL 1998 
0.2 
0.2 
0.1 
0.5 1999 
0.3 
0.2 
0.1 
0.6 2000 
0.3 
0.4 
0.1 
0.8 2001 
0.3 
0.4 
0.1 
0.8 2002 
0.2 
0.3 
0.1 
0.6 2003 
et seq. TOTAL 
1.3 
1.5 
0.5 
3.3 
N.B.: Expenditure already incurred during the first two periods of application of the 
Regulation (1989-92 and 1993-97) was of the order of ECU 600 000, so the total 
amount of expenditure planned for the period 1989-2002 will be, as mentioned in the 
Regulation, ECU 3 900 000. 
7.3 Indicative schedule of appropriations 
commitment appropriations in million ecus 
Commitment 
appropriations 
Payment 
appropriations 
1998 
1999 
2000 
2001 
2002 
2003 et seq. 
TOTAL 1998 
0.5 1999 
0.6 2000 
0.8 2001 
0.8 2002 
0.6 2003 et seq. TOTAL 
3.3 
0.3 
0.2 
0.5 0.4 
0.1 
0.1 
0.6 0.5 
0.2 
0.1 
0.8 0.5 
0.2 
0.1 
0.8 0.4 
0.2 
0.6 0.3 
0.6 
0.6 
0.8 
0.7 
0.3 
3.3 
8. FRAUD PREVENTION MEASURES 
On-the-spot checks will be carried out to verify the execution in Member States of 
projects part-financed by the Commission and to verify the financial aspects. 
9. ELEMENTS OF COST-EFFECTIVENESS ANALYSIS 
9.1 Specific and quantified objectives; target population 
To attain the objectives set out in the Regulation it is proposed to concentrate in the 
next few years on the acquisition of data and improving their comparability and 
reliability in each of the following areas: 
- forestry resources, 
- forest ownership structure, 
- non-commercial values of forests; 
- Community forestry measures, 
- forest products (wood as a structural material ("mechanical") and other forest 
products). 
Special horizontal measures will be undertaken to: 
- define the nomenclatures and common definitions in each of the fields, 
- improve Community-wide comparability of national data collected, 
- determine the technical solutions to be adopted for the collection, storage and 
dissemination of the information taking account of the principle of subsidiarity. 
The Commission intends to use Efics to undertake consistent measures for the forestry 
sector in the Community and to implement them in the best possible way. It may also 
prove useful in the formulation and implementation of more general policies such as 
environmental or industrial policies or for employment initiatives. It is also 
anticipated that the system, by providing reliable information on the European forestry 
sector, its sustainable development and its environment, will more broadly benefit 
various public and private bodies in the Member States. 
9.2 Grounds for the operation 
9.2.1 Need for Community financial aid 
It is necessary for the Community to participate in the measures needed to implement 
Efics and improve the quality of its data. If the initiative were left to the Member 
States the consequence of inactivity on the part of the Community would be the 
continued lack of reliable data on the European forestry sector or, in some cases, the 
lack of any data at all. That situation would not be satisfactory since both the Member 
States and the Community institutions acknowledge that such data are an invaluable 
aid both internationally and throughout Europe for sustainable development (the post-
Rio and -Helsinki process) and within the Community to support measures in favour 
of forestry and to prepare future forestry strategy. 
-SU 
Implementing forestry measures as part of Community policies (the CAP, industry, 
the environment, etc) requires a suitable information system possessing reliable and 
comparable-data at European level. In addition, any national or regional measure must 
have access to such data to form its basic indicators (environment, socio-economic 
conditions, etc) which will later permit a quantitative evaluation of the impact of the 
measure on the territory in question. The specific characteristics and great variety of 
ecological and socio-economic conditions in Europe's forests must be reflected in 
such an information system. Consideration of local and regional features in European 
forests will permit an integrated and decentralised approach at regional level. 
Responsibility for the measure is shared between the Community and its Member 
States. Although it is the Community's duty to collect, process and disseminate the 
comparable and objective data on the European forestry sector, it cannot do this unless 
the Member States are willing to take action to improve national data. Such work will 
require coordination and consultations at Community level and exchanges of 
information and experience will help Member States to profit from their work. 
The development of common European definitions and nomeclatures could not be 
undertaken by the Member States alone. Community activities in that field 
coordinated with those of other international bodies will supply a definite added value 
to Member States' work. 
The need for Community action has been repeatedly stressed by the SFC, which has 
always been unanimously in favour of implementing the System. That need has been 
confirmed by other institutions, viz.: 
- the European Parliament, in its report of 18 December 1996 on the European 
Union's forestry strategy, 
the Economic and Social Committee, in its own-initiative opinion of 24 April 1997 
on the situation and problems of forestry in the European Union and the potential 
lor developing forestry policies, 
- the Committee of the Regions, in its draft opinion on the management, use and 
protection of forests in the European Union. 
9.2.2 Choice of ways and means 
The ways and means chosen by the Community and based around the measures 
described in point 9.1 are the result of discussions with the Member States within the 
SFC. During their course all the scenarios were studied which were proposed in a 
study on forestry inventory systems in Europe conducted by the European Forestry 
Institute (EFI) for the Commission and completed in 1997. For example, the option of 
conducting a Europe-wide independent Efics inventory was judged unrealistic at the 
current slage in view of its expense and the problems which would be encountered by 
Member States. 
The amount allocated is considered relatively modest given the objectives pursued and 
the cost of collecting and processing forestry information in the Member States. In 
*5-
addition to the creation of the information system, Community assistance will be 
concentrated on supporting Member States in their work on creating appropriate 
processes for improving the comparability, reliability and comprehensiveness of the 
data on a European scale. 
9.3 Monitoring and evaluation of the operation 
The operation will be monitored and evaluated in close collaboration between DCs 
III, VI. XI and XII, Eurostat and the Member States represented in the SFC's Efics 
working party and the Agricultural Statistics Committee's "forestry statistics" 
working party. Close cooperation is also guaranteed with international organisations 
such as UN-ECE in Geneva which are already involved on a more worldwide level in 
collection, processing and supply of data on the forestry sector. In the context of that 
cooperation the Commission participates in the work of an inter-secretariat working 
group comprising representatives of DG VI, Eurostat, the FAO, the UN-ECE, the 
OECD and the International Tropical Timber Organisation (ITTO). 
The presence and cooperation of those different bodies guarantees the best possible 
implementation of the operation. 
10. ADMINISTRATIVE EXPENDITURE (PART A OF THE BUDGET) 
Implementation of the Regulation will not require additional administrative 
expenditure. Administration will be by staff already allocated to this task, viz. one 
part-time A official and one full-time B official. 
Expenditure connected with the organisation of meetings, with missions and possibly 
with certain publications will be charged to the general budget headings created for 
that purpose in Part A of the budget. Other expenditure (studies, development of 
special information systems, etc) will be committed in heading B2-5150. 
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ISSN 0254-1475 
COM(98) 173 final 
DOCUMENTS 
EN 03 15 16 17 
Catalogue number : CB-CO-98-170-EN-C 
ISBN 92-78-32132-X 
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