COMMISSION OF THE EUROPEAN COMMUNITIES 
COM(94) 453 final 
Brussels, 30.11.1994 
COMMUNICATION FROM THE COMMISSION 
INTERIM REVIEW OF IMPLEMENTATION 
OF 
THE EUROPEAN COMMUNITY PROGRAMME 
OF 
POLICY AND ACTION 
IN RELATION TO THE ENVIRONMENT 
AND 
SUSTAINABLE DEVELOPMENT 
"TOWARDS SUSTAINABILITY" 
November 1994 
TABLE OF CONTENTS 
I. INTRODUCTION lC 
II. BROAD INDICATIONS OF PROGRESS ACHIEVED 2 
Integration of environmental considerations into other policy areas 2 
Broadening the Range of Instruments 3 
Partnership and Shared Responsibility 4 
Changing attitudes and patterns of consumption and production 4 
Implementation of Legislation and Enforcement 4 
The International Dimension 5 
III. MANUFACTURING INDUSTRY 5 
Introduction 5 
Integration 5 
Small and Medium Sized Enterprises (SME's (6) 
Partnership and Shared responsibility 6 
Broadening the range of instruments 7 
Changing Attitudes and Patterns of Consumption and Production S 
Application and enforcement 9 
International dimension 9 
Conclusion 10 
IV. ENERGY 10 
Introduction "10 
The Integration of Environmental Considerations into the Energy Sector 11 
SAVE (11) 
ALTENER (11) 
THERMIE and JOULE (11) 
Energy Planning (12) 
Climate Change (12) 
Broadening the Range of Instruments 12 
Scientific Research and Technological Development (12) 
Economic Instruments (13) 
Public Information and Education (14) 
Shared Responsibility and Partnership 14 
Changing attitudes and patterns of consumption 15 
The application of legislation and enforcement 15 
The international dimension of the Fifth Environment Action Programme 15 
The European Energy Charter (15) 
Improving Energy Efficiency and the Use of Renewable Energy (16) 
Conclusions 16 
TRANSPORT 17 
Introduction 17 
The Integration of Environmental Considerations into the Transport Sector 17 
Infrastructures (17) 
Fuels and Vehicles (18) 
Broadening the Range of Instruments 19 
Financial Support Mechanisms (19) 
The Economic Approach (19) 
Scientific Research and Technological Development (20) 
Shared Responsibility and Partnership 21 
Changing Attitudes 21 
Conclusion 22 
VI. AGRICULTURE 23 
Introduction 23 
The integration of environmental consideration into agricultural policy 23 
Common market organisations (CMO) (23) 
Rural Development (24) 
A et 
Change in consumption and production patterns 24 
Implementation of environmental Community legislation (26) 
Broadening the range of instruments 26 
Partnership and shared responsibility 27 
Conclusion 27 
VII. TOURISM 28 
Introduction 28 
Integration of environment considerations 28 
Changing attitudes and- patterns of consumption 29 
Broadening the range of instruments 29 
Conclusions 30 
VIII. THE INTERNATIONAL DIMENSION 30 
The Community's role in the wider international arena 30 
Follow-up of international commitments 31 
Agenda 21 and UNCED follow-up initiatives (31) 
Climate change (31) 
Biodiversity loss (31) 
Forests (32) 
Ozone layer (32) 
Transboundary movement of waste (32) 
Trade and environment (32) 
Integration of environmental requirements into development cooperation policy 33 
Lomé (34) 
The Asian and Latin American countries (ALA) / The Mediterranean (34) 
Central and Eastern European countries (CEECS) and the Republics of the former Soviet 
Union (35) 
Conclusion 36 
IX. BROADENING THE RANGE OF INSTRUMENTS 36 
Introduction 36 
Improvement of environmental data and adaptation of statistics 37 
Scientific research and technological development 37 
Sectoral and spatial planning 39 
Environmental Impact Assessment 40 
Development of Physical Indicators and redefinition of national accounting concepts 41 
Development of Cost Benefit Analysis methodologies 41 
Economic and fiscal instruments 41 
Charges and levies (41) 
Success of Unleaded petrol (42) 
Energy/co2 tax (42) 
State aids (42) 
Eco-auditing (42) 
Eco-label (43) 
Liability (43) 
Public Information and Education 44 
Information (44) 
Education (44) 
Professional education and training 45 
Financial support mechanisms 45 
LIFE (45) 
The Structural Policies 46 
Revision of policy (46) 
Technical assistance (46) 
Environmental indicators (46) 
Quality of new plans (47) 
Cohesion Fund (47) 
X. STRUCTURES FOR SHARED RESPONSIBILITY 47 
At Community level 47 
1&-
Dialogue Groups (47) 
Integration of policies (48) 
At Member State level 49 
Consultative bodies (49) 
Formal mechanisms for integration (49) 
Environmental units in other, ministries (49) 
At regional/local level 50 
; Relations with NGOs 51 
XI. APPLICATION OF COMMUNITY ENVIRONMENTAL LEGISLATION 51 
XII. FINAL CONCLUSION 53 
ANNEX I 54 
LEGISLATION IN THE ENVIRONMENT SECTOR 54 
le 
I. INTRODUCTION 
The adoption of the Council Resolution on a Community programme of policy and action in relation 
to the environment and sustainable development, the Fifth Action Programme, on 1 February 1993 
was a reflection of the growing awareness of the importance of sustainable development. The 
Programme had been developed as part of the Community's preparation for the Earth Summit of Rio 
de Janeiro in the summer of 1992 and the Resolution also reflects the decisions made at Rio. It 
makes clear that the " 1992-1995 phase should be viewed as a priming period changing the sense 
of direction and commitment" a period to initiate the journey and stimulate progress. 
In the Resolution, the Environment Policy Review Group, set up under the Programme, was invited 
to keep the implementation of the Programme under review on the basis of regular reports from the 
Commission summarising progress. This is the first of those reports. 
This Report on the situation up to 30 June 1994 comes midway between the formal approval of the 
general strategy and approach of the Programme, and the review that is due to take place before the 
end of 1995, and attempts to measure progress towards sustainable development as defined and set 
out in the Programme. The emphasis is on quality, causes and degrees of shift in direction, above 
all at Community level (focusing on where the Commission has a role in initiating action), but also 
considering developments among the other actors of the Programme. The Report gives some 
examples of developments in Member States. These are highlighted in boxes. Other information 
received from Member States will serve as a valuable source of reference for the review process that 
will soon be starting. 
At such an early stage in the Programme, the report focuses on the qualitative rather than the 
quantitative aspects of development and does not attempt to analyse progress on the various 
indicative measures set out in the various tables of the Programme. These will be analysed as part 
of the review process. It is unfortunate that the European Environment Agency was not in place 
in time to contribute information on progress. 
The Report is being presented at a time when a wider process is moving environmental and 
sustainable development issues towards the centre of policy making. The new Treaty on European 
Union (EU) marks an important step in this process, setting out in Article 2, as one of the basic aims 
of the Community, the promotion of "a harmonious and balanced development of economic 
activities, sustainable and non inflationary growth respecting the environment. " Article 130r(2) of 
the Treaty identifies integration of environmental protection requirements into the definition and 
implementation of the Community's other policies as another important requirement. 
The Commission's White Paper on Growth, Competitiveness and Employment of December 1993 
builds on these principles. Chapter 10 develops some thoughts on a new model of economic 
development that places the environment and sustainable development in the limelight. In it are 
tackled the issues of integrating environmental and sustainable development issues into mainstream 
economic policies on the one hand, and the generation of more employment, on the other. The two 
key elements for reconciling environmental protection imperatives and the logic of economic growth 
into economic sustainable growth are, a major reform of the present fiscal system (internalising 
environmental costs), and the introduction of environmental concerns as elements of competition.. 
Thus, the EU*s environment policy ilnds itself at a major turning point. In the Programme it has a 
strategy for facing the environment challenges for the next ten years and on how to move towards 
sustainable development. 
Later this year, the Commission will be publishing the results of an important study it has had 
carried out to provide an analysis that shows how integrating the environment can be done in a cost-
effective way while supporting economic development and employment. 
The approach chosen to appraise progress at this stage focuses on processes, especially the putting 
into place of mechanisms which are vital to change attitudes towards environmental and sustainable 
development issues. The choice was determined by the fact that the Programme is still young and 
radically different in nature-from the four programmes that preceded it, and because not all targets 
are the responsibility of the EC. 
The six elements that make up this new approach to environmental and sustainable development 
issues, and that lie at the heart of the Programme, are: 
the integration of environmental considerations into other EC policy-areas; 
the broadening of the range of instruments, including economic instruments; 
partnership (involving the European Union, the general public, the business world and national 
administrations) and shared responsibility; 
changing attitudes and patterns of consumption and production; 
the application of legislation and enforcement; 
the international dimension of the Fifth Environment Action Programme. 
The Report examines progress on these six elements within each of the five main selected target 
sectors identified by the Programme: agriculture, energy, manufacturing industry, transport, and 
tourism. Because the process of changing attitudes is fundamental to sustainable development, and 
in line with the structure of the Fifth Programme, separate chapters have also been included on the 
international dimension, widening the range of instruments, development of structures for shared 
responsibility, and application of environmental legislation that examine in greater depth progress 
in this direction. 
*** 
II. BROAD INDICATIONS OF PROGRESS ACHIEVED 
It is too early to be able to make a full review of progress on the individual elements of the 
Programme. All that can be done, after eighteen months experience, is to try to assess if and where 
changes in attitudes and in approach are beginning to occur and whether there are indications that 
the EC is rising to the challenge set out in the Fifth Programme to put sustainable development at 
the heart of its policies. 
Set out below are some broad indications of progress in relation to the six elements that lie at the 
heart of the Fifth Programme. The main text of the Report elaborates and illustrate these statements. 
Integration of environmental considerations into other policy areas 
In the five key target sectors some progress has been made. However there is insufficient awareness 
of the need and a lack of willingness to adequately integrate environmental and sustainable 
development considerations into the development of other policy actions to the benefit of the policy 
itself and of the environment and sustainable development. 
While there has been some progress on integration of environmental approaches within Community 
policies and in certain Member States, sustainable development essentially continues to be seen as 
the business of those who deal with the environment. The evidence suggests that integrating 
environmental considerations into other policy areas requires both unified environment 
administrations able to influence other parts of the administration as well as the strengthening of 
environmental awareness in other parts of the administration for example by creating environment 
units. 
Progress has taken place within the Community and individual Member States in areas such as the 
revision of the Structural Funds, the incorporation of environmental considerations into state aid, 
and the adoption of some measures in agriculture and the integration of environmental dimension 
in almost all Community RDT specific programmes (1994-1998). In trade policies important political 
targets have been set. Furthermore, there has been some encouraging progress in integrating the 
environment into policies dealing with manufacturing industry, most notably in relation to large 
companies. 
Strategic assessments of the impact of policy initiatives on the environment have yet to take root, 
in most of the Member States. The Commission has undertaken to carry out such an approach in 
making its own proposals. 
Initiatives on the introduction and implementation of appropriate mechanisms to ensure that 
environmental and sustainable development concerns are considered in new policy actions need to 
be speeded up. 
Broadening the Range of Instruments 
Despite the commitment to diversify the range of instruments set out in the Programme, progress 
has been slow at Community or Member State level. Legislation remains the main approach, 
although the number of new proposals from the Commission has diminished,and the type of 
legislation it is proposing is moving away from the pure legislative approach to more framework 
enabling legislation and to the simplification and clarification of existing legislation. 
In the area of economic instruments, there has been only slow progress in discussion of the single 
Community instrument under consideration, the C02/energy tax. In other areas in Member States, 
despite a number of important initiatives, developments are still at the stage of experimentation. The 
Commission's White Paper in its Chapters 9 and 10 points to directions to be considered for the 
future in terms of changes in fiscal instruments. 
In the area of financial support mechanisms important progress has been made at Commission and 
Member State levels in integrating environmental considerations into Structural Funds and the 
Cohesion Fund. Integration of environmental concerns needs to be better reflected in the regional 
development plans and proposals for funding being developed by Member States. 
Whilst there has been some progress in developing environmental and sustainable development 
indicators there is a need for more intensive work to ensure environmental costs are internalised. 
There have been some improvements in the availability of data. The European Environment Agency 
will have a vital role to play to speed up improvement For this to happen, it is important to 
establish the Agency's work programme as soon as possible as well as to ensure good working 
relations between the Agency, the Commission and Member States. 
Closer linkages between Research and Development policies and environment and sustainable 
development policies are developing but need to be intensified particularly in the context of the 4th 
Framework Programme's implementation and its linkages with the Fifth Environment Action 
Programme. 
Increased efforts need to be put in place to ensure better information on sustainable development 
issues at EC and Member State levels to increase public awareness and to help change attitudes. 
Partnership and Shared Responsibility 
The setting up of sustainable development strategies or plans to parallel at Member State level 
Agenda 21 and the Fifth Programme has taken place or is taking place in only seven Member States 
and needs to be considered urgently by others. Consideration needs to be given as to whether 
regional and/or local plans need to be further developed where appropriate. 
There has been progress in increasing levels of dialogue and of transparency on environment and 
sustainable development issues at both EC and Member State level. The creation of consultative fora 
by the Commission and by certain Member States provides an opportunity for increased dialogue 
but further efforts are required to involve the whole range of actors in society. 
Changing attitudes and patterns of consumption and production 
The recession has reinforced industry's (large companies and small and medium-sized enterprises) 
perception that environment and sustainable development issues are stumbling blocks. There have 
been only a few cases where sustainable development is recognized as an approach that can create 
jobs and is not inherently anti competitive. 
Chapter 10 of the White Paper on Growth, Competitiveness and Employment provides a new 
perspective on how to achieve progress towards sustainable development and needs further 
consideration particularly in relation to its ideas on switching the fiscal burden from labour and 
social costs to natural resources. 
Developments on environmental management and audit schemes, environmental labelling and the 
inclusion of environmental details in company reports are contributing to progress towards changing 
attitudes. Attention needs to be paid to the management of production methods and to ensuring that 
the transmission of the experience in this field from large to small companies takes place. 
Close attention needs to be given to sustainable development in the implementation of the strategic 
programme for the EC's internal market in particular. 
Implementation of Législation and Enforcement 
There has been progress in ensuring that Community legislation is being implemented more 
effectively and that it is seen as a shared responsibility. Nevertheless greater effort is necessary to 
ensure that legislation is implemented and enforced more efficiently. This can be facilitated by the 
clarification and simplification of existing legislation that will, at the same time, maintain high 
quality standards. The Fifth Programme's Implementation Network can make an important 
contribution to progress in this area by assuring closer contacts between regulators and policy­
makers, and those concerned with a day to day implementation. 
The International Dimension 
UNCED has given a new impetus to international dialogue and cooperation on environment and 
development and, as anticipated in the Fifth Action Programme, its outcome is deeply influencing 
Community action and policies. Even if new problems have emerged in the past two years (eg. 
economic recession, security issues in many regions of the world) it is essential to maintain the 
momentum generated by the Rio Conference. 
*** 
III. MANUFACTURING INDUSTRY 
Introduction 
A primary goal of the Community is to create the conditions for a strong and competitive industry. 
This was emphasised in the White Paper on Growth, Competitiveness and Employment. It is 
however recognized, that the current development model leads to less labour and more capital-
incentive production methods. This is accompanied by a continued over-exploitation of 
environmental resources. The consequences of this type of industrial activity may go beyond the 
tolerance level of the natural resource base and limit further industrial development. 
Integration 
The thrust of the Fifth Programme is to develop sustainable policies and instruments good for the 
environment and for business. Larger companies are gradually realizing that a sound natural resource 
basis is prerequisite to their continued development and that, in view of competitiveness in Europe 
and world wide, investments in environment are becoming productive investments to stay in business 
or even to open or expand markets. 
In its Communication on "Industrial Competitiveness and Protection of the Environment" of 
November 1992, the Commission stressed that "integration of competitiveness and the environment 
requires a strategy that should be built around solutions based on the competitive functioning of 
markets. This implies in particular emphasis on market-related instruments of environment policy." 
The Council confirmed and reinforced these conclusions in its Resolutions of 3 December 1992 and 
its Conclusions of 4 May 1993. Some of these arguments have been taken further in the White 
Paper. 
Article 2 of the Treaty stresses that the completion of the Internal Market will be an important 
means to reach sustainable and non-inflationary growth respecting the environment. In return, a 
move towards sustainable growth is vital for the long-term success of the Internal Market. The 
Strategic Programme for the Internal Market, which the Commission adopted at the end of 1993, 
stresses the need for enhancing the coherence between the Internal Market and environmental 
protection. 
The Commission is investing considerable resources in investigating the interface between industry 
and sustainable development. 
Within the framework of the 1996 study on the impact and effectiveness of the Internal Market 
programme, the nature and extent of the impact of the measures adopted for the Internal Market on 
the environment and on sustainable development will be studied. 
In addition, in 1993, studies were started directly or indirectly aiming at integration (such as a 
feasibility study on statistics on eco-industries and eco-products, on new clean and low waste 
products and on economic evaluation of environmental protection measures. Results of these studies 
are expected in mid 1994. Other studies on the development by industry of product life cycle 
analysis, and on sustainable use of raw materials are due to be launched in 1994, together with a 
round of interviews with industry on the impact and integration of environmental measures on 
enterprise strategies. 
Small and Medium Sized Enterprises (SME's) 
In relation to small and medium enterprises (SME's) developments in policy reorientation have been 
very modest and need to be enhanced. The message of the potentially positive role of environmental 
protection has just started filtering through in recent policy documents aimed at supporting SME's. 
It is necessary to provide direct practical assistance eg. in respect of the provision of expert 
consultancy services, training programmes, and financial incentives or assistance etc. This should 
be directed to help SMEs realize their potential within highly competitive markets so they can exploit 
their high level of flexibility, innovation, and adaptability, which could lead to the opening up of 
entirely new markets or to new methods in existing markets. 
Within the context of an Integrated Programme in favour of SMEs and the Craft Sector of May 1994, 
the Commission is currently working on ideas for creating new jobs particularly in areas not so far 
exploited such as services for the protection of the environment. 
Under the Community Structural Funds Programme for 1994 to 1999, provision has been made for 
a special Community Initiative for SMEs of 1 billion ECU. It is up to Member States to submit 
operational programmes or applications for global grants. Within the seven priority areas for 
increasing the competitiveness of SMEs and their international involvement with the aim to support 
environment related activities, including the development of clean technologies and clean production. 
l£e ÏÈriMt> D3KBS&, QeB«a& pd Putt jgoveq«nefl& fcave teeloped initiatives to assist $MB*$ 'with 
<&ûsttltaiîts advice aad iiaaa.dk incentives to apgrade envimtntiejital pej&tataace aad to install cleat* 
ted*aol9gy+1» &e tf£ iœfeisfeyjkas setiip &€èmmïtte® fe> fcetp clearer technology <fevefeped lor Jasgs 
Partnership and Shared responsibility 
In recent years, there has been an increasing and systematic involvement of, and dialogue with, 
industry organisations and other interest groups in the development of the Commission's legislative 
proposals in the environment sector. A regular dialogue has been instituted between the European 
industry federation UNICE and the Commission. In November 1992, the British Presidency organised 
with the Commission, a major conference on European Business and the Environment, the Future. 
This conference highlighted experiences in opportunities, financial challenges and other issues 
related to business and environment. With the support of the Commission, the European Partners 
for the Environment was created in 1994 to provide a platform for industry and NGO's to meet and 
discuss possible ways to move towards sustainable development, in particular through training and 
information initiatives. 
Research is being conducted for the Commission on how to include environmental information in 
company accounts. European accounting organisations are closely involved. The Commission plans 
to put forward a proposal on the disclosure of environmental issues in company accounts in 1995, 
based on consultations with Member States, industry and professional organisations. 
The potential role of financial services in achieving sustainable growth is also being explored. 
Decisions regarding measures to reduce risks associated with industrial installations, chemicals and 
biotechnology, should be made on a sound and scientific basis. Industrial organisations have taken 
a leading role in promoting data collection on existing chemicals. Significant progress has also been 
recently made in the development of a consensus on the methodologies for risk assessment, in 
particular on chemicals. To develop and maintain such a consensus, a close cooperation between all 
interest groups is necessary. 
Another interesting example of shared responsibility and partnership with industry, is the "Auto-Oil" 
research programme, a joint collaboration between the European automobile and petroleum industries 
and the Commission (see also the Chapter on Transport). 
In the TJK an Advisory Committee on Business and Environment was set «p bringing together 25 
business leaders willing to look beyond narrow interests and be confronted with, difficult choices> 
necessary to meet environmental goals, The Committee provides a successful forum for effective-: 
dialogue between business and government Another example is the operation of the Responsible 
Care Programme by CEFIÇ, the European Chemical Industry Federation* 
Broadening the range of instruments 
Both the Fifth Programme and the Strategic Programme for the Internal Market acknowledge that 
many environmental issues can best be tackled by an interplay between the main economic actors, 
not only through legislation but also by using an extended and integrated mix of other instruments 
(such as standards and/or certification systems, voluntary schemes or economic instruments). 
The Commission has issued several Communications on standardization over the last 3 years, and 
a formal consultation paper on environmental standardization in 1993. In June 1993, a major 
conference on environmental standardization was organized, bringing together all interested parties 
to discuss a cornmon strategy. Working groups within the European Committee for Standardization 
(CEN) and the European Committee for Electro-technical Standardization (CENELEC) are studying the 
possible integration of standardization addressing environmental parameters (such as noise, 
mechanical vibration, characterisation of waste, water analysis, air quality, etc.), in an approach 
considering the environment as a whole rather than as a number of isolated phenomena. 
An environmental Programming Committee has been set up in CEN/CENELEC and has been 
operational since the summer of 1993. Examples of ongoing work in this field include the 
establishment of a set of standards in the area of packaging and packaging waste, environmental 
management systems, the integration of environmental aspects in product standards and the 
preparation of reference measurement methods for a number of pollutants including dioxins, S02, 
mercury and 23 dangerous substances discharged into water. 
The Commission is examining the possible role of voluntary agreements at EC level in the 
environment field . The establishment of a Community frameworkibr those agreements is currently 
under discussion. The Commission will continue and support dialogue with industry on this matter 
as it did on alkaline batteries, detergents and the phasing out of the use of CFC's by certain industrial 
sectors. In the course of 1994, the Commission will consider making specific proposals for voluntary 
agreements related to specific products or industrial sectors. 
Environment has become onje. major concern of enterprise quality policy. Within the framework of 
the European Quality Policy under development by the Commission, the protection of the 
environment is playing an important role during all of the phases of the product life cycle and in 
terms of integrating the different elements relating to environmental management systems into 
enterprise quality management. 
Over the past decade vohiutary agreements or covenants have become policy tastraments in the 
Netherlands (over 30), Belgium,- Portugal and Germany (more, than 40), some at local level, others 
with industry assoçtatîoas» associations of individual companies or interest groaps (eg* NCff/s)* 
Voluntary agreements have become, more popular in these countries because of a change of view <m 
the role of government in environment policy,, and the trend towards'deregulation* Issues addressed 
in voluntary agreements vary widely from packaging, use of chemicals to the disclosure of 
environmental information 
Changing Attitudes and Patterns of Consumption and Production 
At EC level, a number of initiatives have been launched to stimulate changes in consumption and 
production. The Commission proposed a Directive on Integrated Pollution Prevention and Control 
(IPPC) which constitutes a qualitative step towards a more rational control of industrial pollution 
through the application of Best Available Technologies (BAT), IPPC will enhance the active 
participation of all parties and improve the coordination between competent licensing authorities. 
Fifteen notes containing the descriptions of existing BAT, the performances achieved in terms of 
emission abatement and the cost associated, have already been produced. The notes are not legally 
binding and serve only as information for Member States and industry. The Proposal for a Directive 
on Packaging and Packaging Waste aims at a considerable reduction in the use of packaging material 
and setting targets for its recycling and re-use. 
In collaboration with industry and OECD, preparatory work is under way with a view to establishing 
an EC pollution emissions register which could cover the most important pollutants emitted to air 
and water, from major sources and source categories, and could be complemented by voluntary 
agreements with selected industrial partners, aiming at emission reductions. 
In the area of waste, cooperation with industry and other partners is continuing on the Priority Waste 
Stream Programme which includes projects aiming at finding ways, on a voluntary basis, to prevent 
waste, to optimize its re-use and recycling through better design of the product, and to minimize and 
optimize final disposal. 
Companies need to integrate environmental protection in their management, in order to raise the 
quality of their, products and production. In this context companies, in particular SMEs, are being 
encouraged to make use of the eco-audit and eco-label schemes. In 1994, an analysis will be made 
on the environmental impact of eco-label and the competitiveness of eco-labelled products outside 
the Community. 
In Belgium, Germany» the Netherlands and Denmark, deposit refund systems: in the beverages sector 
were introduced to Stimulate the re-use/reCyclîng of glass and Other materials. In Germany, On 
average* 72% of all beverages sold in bottles are covered by such a scheme* • • 
Application and enforcement 
The maintenance of safety and environment standards in Member States needs to be reinforced. In 
this context, and in the post-1992 phase of the Internal Market, much attention is being given to the 
improvement of administrative cooperation between national enforcement authorities, and between 
them and the Commission, by the means of an adequate communication and data exchange 
infrastructure. Such a system will provide a pragmatic, non bureaucratic approach, and thus offers 
the best chance for products and services in circulation in the Community to respect the rules in 
force, whether these are harmonized at Community level or governed by mutual recognition of 
national rules. Any deviations from these rules will be quickly followed-up by cooperation between 
administrations. On 16 June 1994 the Council gave its support to this approach by adopting a 
Resolution on administrative cooperation. 
In the area of chemical control, the Commission is encouraging a strengthening of the links between 
the customs and the control authorities responsible for chemicals' legislation. Furthermore, annual 
programmes for coordinated control actions across the EC, have been planned and executed. A 
common guidance document for inspectors conducting control actions has also been developed and 
approved by the Commission, in collaboration with the competent national authorities. 
International dimension 
In its Communication on Industrial Competitiveness and Protection of the Environment in November 
1992, the Commission stressed that Community international action should be based on a qualitative 
improvement of environmental and industrial policies, a constructive exchange with industry 
(partnership) -to improve the effectiveness of environment policy, and the preservation of the 
integrity of the Internal Market while promoting the protection of the environment at high level. 
The ability of Community industry in open and competitive markets, and the achievement of a high, 
balanced, and in the longer term, environmentally sustainable degree of development, depend on the 
successful integration of industrial competitiveness and protection of the environment. Germany and 
Japan have gained competitive advantage from the early adoption of severe regulatory requirements, 
and the early recognition by their industries of the potential in first mover advantage. This has also 
been carried further in the White Paper. 
In 1993, the Commission conducted a study on the competitiveness of the European industry and 
of sustainability. 
10 
Conclusion 
In spite of the recession, some encouraging progress has been made towards achieving the aims of 
the Fifth Programme, in particular in relation to the larger companies competing in international 
markets. 
In more domestically oriented firms and in SME's, progress is very slow. Companies still seem to 
be in a reactive mode. As the White Paper indicates, SME's seem to have created the most jobs over 
the last decade, and will have the best potential in the future. The White Paper mentions the 
employment potential of the environment sector, and the competitive aspects of applying highly cost-
effective and cleaner technology. 
In aggregate, SMEs also cause their share of pollution and waste. Consequently, SME's need to apply 
the same environmental standards and requirements as other parts of industry but disproportionate 
and burdensome administrative financial or legal constraints, need to be avoided. 
As many SME's depend on demand created either by changing preferences of consumers, or by large 
firms, which will be obliged to tighten up their processes or will voluntarily want to meet certain 
standards (such as eco-label and eco-audit), they will have to follow their larger partners if they 
want to stay in business. 
The use of voluntary,agreements and other forms of self regulation has not yet become widespread. 
This is particularly true of the more legislative oriented Southern European countries. 
*** 
IV. ENERGY 
Introduction 
Both at European Community and Member State levels, energy was among the first economic 
sectors to integrate environmental considerations. This was partly due to the energy crises which 
made policy-makers aware that solutions to energy and environment problems lay in energy 
efficiency measures. 
The Commission had already taken some important steps in integrating the environment into energy 
policy before the Fifth Programme (eg. the 1988 Large Combustion Installation Directive). In 1990, 
a defining landmark decision was agreed by the joint Energy and Environment Council, aiming to 
achieve stabilization of EC co2 emissions by the year 2000 at 1990 levels. 
In view of the achievements so far, the question is what progress has been made.in the last eighteen 
months and to what extent policy-makers have ensured that economic growth, efficient and secure 
energy supplies, and a clean environment have gone hand-in-hand. 
11 
The Integration of Environmental Considerations into the Energy Sector 
SAVE 
The SAVE programme, launched in 1991, has two aims. The first is to contribute to stabilizing co2 
emissions; the second to attain the 1986 energy policy objective of 20% energy efficiency 
improvement up until 1995. Progress in achieving both aims has been modest. 
Initially 12 directives were foreseen. So far only three have been adopted (energy efficiency 
requirements for new hot water boilers, labelling of major household appliances which are relevant 
to the internal market; moreover, an omnibus Directive grouping various other co2 reducing energy 
efficiency measures was adopted in 1993). Directives on efficiency for freezers and refrigerators, 
on cars to limit C02 are under preparation as well as a Directive concerning the introduction of 
rational planning techniques (integrated resource planning) in the utility sector. A further Directive 
on co-generation is under consideration. 
The omnibus Directive mentioned above has given Member States a high degree of flexibility in 
choosing C02 abatement actions in the fields of: 
energy certification of buildings, 
the billing of heating, air. conditioning and hot water costs based on actual consumption, 
third party financing for energy efficiency in the public sector, 
thermal insulation of new buildings, 
regular inspection of new boilers, 
and energy audits of undertakings with high energy consumption. 
Such flexibility, however, renders the estimation of the C02 abatement effects highly uncertain. Only 
50% of SAVE'S aim of improving energy efficiency by 20% between 1986 and 1995 is expected to 
be achieved. Moreover, a substantial part of the improvement of some 10% had already been 
achieved before 1990. The objective of improving energy efficiency becomes more challenging in 
a climate of persistently low energy prices. This makes the need for continuing vigorous action by 
SAVE, including support to pilot projects and information networks, clear. 
ALTENER 
This programme was formally adopted in September 1993. Its goal is to encourage the market 
penetration of renewable energy sources and to considerably reduce C02 emissions. It has already 
prepared standards for biodiesel and given support to projects. However, its medium-term impact 
is expected to be modest, given its limited resources: a budget of 40 million ECU over a five year 
period. Moreover, because of the long lead time involved in the market penetration of new energy 
sources, most of ALTENER'S effects are expected to materialize only after the year 2000. 
THERMIE and JOULE 
The THERMIE programme is the current EC project for demonstrating and disseminating cleaner and 
more efficient technologies in order to facilitate their widespread market penetration. The aim is that 
energy and environmental benefits of new technology can be reaped to the largest possible extent 
and as soon as possible. 
12 
The investment in cleaner and more efficient energy technology, triggered by THERMIE for example 
or by similar national programmes, is a prerequisite for meeting ongoing energy services demand 
(light, heat, motion, communication) with less primary energy requirements and environmental 
impact. 
The duplication of successfully demonstrated projects and measures to encourage their market 
penetration require several years. This is particularly true of measures geared at technology 
improvements that include-the R&D activities of the JOULE programme. However because of the long 
lifetime of energy equipment, these effects persist for many years. 
Energy Planning 
Under the scheme setting up the Energy Planning projects (1993), environmental issues heavily 
influence the process of selecting and accepting projects. A fundamental goal of local and regional 
projects undertaken in the context of Energy Planning is to protect the environment by developing 
energy management, improving energy efficiency, and by providing alternate energy production 
options. It is thus making a substantial contribution towards reducing the environmental impact of 
the various pollutants related to energy use. 
Climate Change 
The negotiation and ratification process of the Climate Change Convention has triggered several 
processes of integration of environment, energy, industry and economic policies, shared 
responsibility and partnership, at all decision-making levels in the Community, the broadening of 
the range of instruments (carbon/energy tax) and intense rounds of international negotiations. 
The climate change issue - at the heart of the energy and environment interface - is an important 
illustration of how a complex set of international problems can nurture the integration of the 
environment into several other sectors at once, an exceptional level of coordination between those 
sectors at regional, national and EC levels, unprecedented public and international awareness and a 
debate on global environmental issue. 
Inter-ministerial eoûrdmarJôit mechanisms on climate change have been set up In five Member 
States; France, Germany,. Portugal* Spain mû the U& 
Broadening the Range of Instruments 
Scientific Research and Technological Development 
Substantial efforts are being made in the field of energy technologies, ranging from relevant research 
and technological development in the EC's 3rd Framework Programme (JOULE II Specific programme 
on Non-Nuclear Energies) and the 4th Framework Programme (FP4) (more than 2300 million ECU 
for energy related issues, including R&D and Demonstration for Clean and Efficient Energy 
Technologies) to the THERMIE Programme. Its objective is to move energy technology from the 
research and development stage to commercial application. This involves the distribution of results 
and the promotion of clean and efficient technology. 
13 
Recently the programme has been oriented towards projects with a direct impact on C02 emissions; 
more generally, environmental concern, in particular C02 emissions, has been identified as the main 
driving force of the next RDT energy activity in the 4th Framework Programme. 
As part of FP4'S "Telematics for Improving Broployment and Quality of Ufe" Kesearch Programme, 
the Prolink Project gets engineers from across Europe to use Western expertise in remote monitoring 
using telematic systems tersurvey a nuclear power station in Bulgaria. The aim of the project is tQ 
strengthen the. existing relationship between electrical energy producers in Eastern and Western 
Europe and demonstrate how information technology can enhance safe nuclear power and how such 
a distributed information system can be important to the management, security and optimization of 
energy production and distribution networks. 
Economic Instruments 
A most important element in any integration strategy is the internalization of external costs. 
Amongst others, taxes are instrumental to this. To create market-based incentives for 
environmentally friendly economic behaviour, the Commission foresees to increase recourse to 
economic and fiscal instruments. Ideally, energy consumption, in both the commercial and private 
sectors, should be based on full cost energy prices without subsidies. 
The energy/co2 tax proposed by the Commission in May 1992 represents a first step in this 
direction. The objective of the tax is to stimulate a more efficient use of energy and to contribute 
in switching to fuels containing less or no Carbon. Such an instrument would have several additional 
"no-regrets" benefits such as the reduction of other pollutants, the improvement of energy security 
due to the conservation of energy and the achievement of overall technical progress. Only limited 
progress has been made towards an agreement on the proposal. 
Some Member States use subsidies, in one form or another, and environment audits as part of their 
economic instruments. The Netherlands, Spain, France and the UK use subsidies for energy efficiency 
measures or for promoting the development of renewable energy sources. In the Netherlands^ 
subsidies are provided for energy conservation initiatives, combined heat and power projects, 
renewable energy-sources, low emission vehicles,, low emission heating systems and. manure 
processing and storage. In Spain, the National Energy Plan (19^1-2000) includes a plan for energy 
saving and efficiency. Both Luxembourg and .the life, have implemented energy audit schemes. In 
Luxembourg, the law of 5 August 1993 establishes "energy audits" by which industries and 
companies using 35W/h of energy per annum and over, are obliged to draw up energy audits and 
evaluate the possibility for energy savings. 
Given the existence of market imperfections, which in the case of energy includes the lack of 
relevant information for the consumer and institutional obstacles to financing cost effective energy 
and efficiency measures, the Community has implemented several non-fiscal measures that neutralise 
these imperfections and thereby reinforce the effectiveness of fiscal measures. For example, even 
if the carbon/energy tax were fully in place, its impact would be reduced by the failure of price 
signals to reach the consumer. Non-fiscal measures in the SAVE Directive - such as energy efficiency 
labelling for domestic appliances allowing the consumer to identify energy efficient products - can 
remedy this. 
14 
Integrated resource planning in the electricity and gas distribution sectors, particularly demand side 
management, constitutes another important means for improving energy efficiency, because it 
ensures distribution utilities gain a return from their energy efficiency activities and encourages them 
to further embrace their role as energy service suppliers rather than being simply "commodity" 
traders. The current draft Commission proposal for a Council Directive to introduce rational 
planning techniques in the electricity and gas distribution sectors is designed to bring about such 
a development. 
Public Information and Education 
SAVE has set up an information exchange network on energy efficiency aimed at all the levels of 
the EC, the goal being that all EC citizens will ultimately be aware that energy efficiency not only 
saves money but brings benefits to the environment. 
ALTENER is also establishing an information exchange this year and will launch a major information 
programme stressing the benefits of greater levels of renewable energy in the EC's energy mix and 
the resulting environmental benefits, especially in terms of co2 emission-levels. 
THERMIE also disseminates information through documentation, the organisation of forums, seminars, 
workshops and training programmes. The majority of these activities are carried out through the 
Community's network of Organisations for the Promotion of Energy Technology (OPET). 
Shared Responsibility and Partnership 
The revised SAVE programme, adopted in the context of the co2 Strategy leaves a significant 
number of important energy efficiency actions to the Member States under the principle of 
subsidiarity. It is expected that Member States will act according to the joint objectives of co2 
emission stabilisation and energy efficiency. The programme also promotes a series of pilot actions 
to help Member States establish better energy efficiency infrastructures. Five areas of possible action 
are: education and training, integrated resource planning, third-party financing, combined heat and 
power, and monitoring and targeting. 
The ALTENER programme aims to support Member States' policies in the field of renewable energy 
sources. It supports their initiatives for creating or extending infrastructures for renewable energy 
sources by providing possibilities for EC contribution in various related areas (such as equipment 
of new or existing buildings with photovoltaic modules, "guarantee of solar energy results," biofuels, 
third-party financing, local development plans, feasibility studies, etc.). 
In Energy Planning projects, shared responsibility and partnership involve the Commission, Member 
States, local authorities, utilities and other interested groups in financing (where the EC can 
contribute tip to 40% of total costs), and in technical assistance, distribution of information and in 
setting up information exchange networks. Steering Committees, set up to provide a forum for ideas 
and interests, do make notable contributions to* environmental protection issues. 
The Commission is involved in developing voluntary agreements with manufacturers on appliances 
and a voluntary labelling programme on energy efficiency in computer equipment. It is currently 
cooperating with Eurelectric (from the private sector) to find cost-effective ways to limit electricity-
related greenhouse gas emissions through the evaluation of supply and demand side options. 
15 
Simultaneously, the Commission is fostering a dialogue with other energy industries on energy and 
environmental matters in general and more specifically on finding,practical and cost-effective ways 
of achieving objectives at the energy/environment interface. 
Another example of partnership is the monitoring mechanism of C02 and other greenhouse gas 
emissions set up by Council Decision 93/389/EEC in June 1993. The mechanism is designed to 
monitor the implementation plans and programmes of Member States and involves an annual 
assessment of measures taken, and of their likely impact on C02 emission levels in the year 2000. 
A monitoring committee was set up with the aim of further enhancing partnership. 
Changing attitudes and patterns of consumption 
An implicit aim in many of SAVE's activities in information, education and training on efficient 
energy use, is to change user behaviour. 
Specific examples that SAVE supports are: 
professional training to improve rational energy use in industry, construction and transport; 
information on potential in energy saving and viability of the corresponding investment; 
proposals for energy certification of buildings; 
individual heat billing system in multi-residential buildings, based on heat metering; 
and the use of a standardised Community equipment label allowing comparative information 
on energy consumption (with the labelling of domestic appliances as a first step). 
Actious at Member Stares i**»»* ^«m *• > 
management ^mmimmtogo<>à^^l^^^^9^m^^(^^^^^t0p ' 
or ««to energy efRci^Z^T,St^^^^J°te^foi^to<1^P 
Plans are considered regularly a, Board ££ fcwZST'™' J*?* •"** **» ** 
Agency and Energy .Management (TrJS)fJlZS^?i*T'^^^m™^ 
The application of legislation and enforcement 
One goal of the SAVE programme is to promote energy efficiency legislation that will remove 
institutional and administrative barriers to investment in energy efficiency and create standards for 
energy equipment. However, in view of the 1993 SAVE Directive (see above, "Integration" section) 
progress in this field has been slow, and is likely to remain so. 
The international dimension of the Fifth Environment Action Programme 
The European Energy Charter 
The European Energy Charter is a political declaration committing its signatories to cooperate in 
trade, investment and other policies in all energy sectors. These efforts should lead to the creation 
of a true energy market throughout Europe. Since its signature in December 1991, negotiations on 
the draft Energy Charter Treaty and Protocols (including the Energy Efficiency and Environment 
Protocol) are nearing completion. 
16 
Improving Energy Efficiency and the Use of Renewable Energy 
Two driving forces are shaping EC action to improve energy efficiency and promote renewable 
energy use worldwide: the potential offered by improving energy efficiency to reduce energy 
consumption growth (from 1990's 9 billion toe to 13, instead of 20 billion toe by 2050, according 
to recent UN estimates), and the fact that countries outside the EC will account for most of this 
growth. In this respect, important initiatives have been taken in Central and Eastern European 
countries ( CEECs) and in the former Soviet Union. 
Since 1992, the THERMIE programme is using its OPETS (Organizations for the Promotion of Energy 
Technology) to set up EC Energy Centres in the CEECs with the aims of stimulating the market 
penetration of energy efficient technologies, of providing a permanent presence of European energy 
technology experts and of helping in the creation of effective national energy infrastructures. 
The TACIS programme has extended these Centres to the Republics of the former Soviet Union. 
Recent actions include energy audits in various industrial branches (aluminium, steel, cement, paper), 
energy metering workshops in St. Petersburg, Moscow and Minsk and an extensive energy saving 
campaign in Hungary. 
The Community's ongoing SYNERGY Programme provides assistance to developing countries' 
organisations, planning and implementation actions in the field of energy policy. Not only does this 
form of cooperation provide for effective decision making which can improve the generally low 
efficiency rates in energy systems, but by doing so negative impacts on the environment will be 
decreased. 
Conclusions 
The integration of environmental protection requirements into energy policy is being pursued in 
various fields. Important synergies between energy and environmental goals can be exploited in areas 
such as maximising the potential cost effective improvements in energy efficiency, which helps both 
the environment and European competitiveness. Moreover, diversification towards new energy 
sources with low environmental impact such as renewables can improve both energy security and 
the environment. And the development, demonstration and promotion of clean and efficient 
technology brings at the same time energy and environmental benefits. 
The Community's Climate Change policy relies to a large extent on adequate response strategies in 
the energy sector. In this respect, the Decision of 1990 to stabilise co2 emissions,marks a high point 
as well as a very significant step towards integrating environmental considerations into energy 
policy. Subsequent action is focused on the energy sector and a great deal of C02 abatement action 
is to be implemented through energy policies. Higher consumer prices for fuels might support the 
various specific actions and could, by themselves, contribute towards a reduction of energy 
consumption thereby lowering co2 emissions. 
The achievement of sustainable energy development that reconciles economic growth, efficient and 
secure supplies and a clean environment is challenging especially in a situation with abundant fossil 
fuels supplies at low costs. As President Delors said in 1993, in his speech at the November 
Conference Towards a European Model of Sustainable Development, "we are living in a reverse 
"petrol-shock" situation". The real cost of petrol today is much lower than in 1980. 
17 
This explains why efforts to improve energy efficiency across Europe have decreased. It requires 
a strong political will to move towards sustainability by searching for cost effective and balanced 
solutions for integrating the environment at the Community, Member States and regional/local levels. 
*** 
V. TRANSPORT 
Introduction 
The integration of environmental considerations into transport policy has proved difficult. In 1992, 
two Commission documents drew attention to the growing recognition that the environment needed 
to be an integral part of transport policies. The Green Paper on the Impact of Transport on the 
Environment, proposed a strategy for sustainable mobility, and later in the year, the White Paper 
on the Future Development of the Common Transport Policy defined environmental sustainability 
as one of the fundamental objectives of the Community's transport policy. 
The Integration of Environmental Considerations into the Transport Sector 
The Fifth Programme sets out the areas where progress is needed to make transport sustainable: 
infrastructures, fuels and vehicles, and user behaviour. User behaviour will be dealt with in the 
section "Changing Attitudes and Patterns of Consumption and Production" below. 
Infrastructures 
A priority of the Common Transport Policy is the creation of a Trans-European Network for 
Transport (high-speed and conventional rail, roads, combined transport, inland waterways, ports and 
airports). The TEN will shape the European transport system far into the next century. It is crucial 
that its development follows sustainable mobility conditions. Unfortunately, progress in this direction 
has been piecemeal and slow. 
The Commission's proposal of March 1994, on Community guidelines for a multi-modal TEN, 
provides for the gradual integration of the different modal and national transport networks into one 
multi modal TEN by the year 2010. The implementation of the guidelines will be assessed by the 
Commission, at the latest after five years, in the light of the objectives set out in the proposal. These 
include the contribution to the Community's environmental objectives. Already, the reduction of 
environmental impacts for TEN airports is seen as a priority. 
Environmental concerns must play an essential role in work on the TEN. The Commission's proposal 
on Community guidelines for a multi-modal TEN contains a commitment to undertake a strategic 
environmental assessment. Although a study of the environmental effects of the High Speed Train 
network has already been carried out, a satisfactory methodology for a meaningful environmental 
impact assessment of a strategic programme like the multi-modal TEN programme has yet to be 
found. Work is being carried out with the aim of finding a practical and satisfactory approach. The 
results of such assessment, together with a socio-economic assessment will be part of the basis of 
revising the current proposals. 
18 
Fuels and Vehicles 
For over 20 years, the Community has regulated emissions from road vehicles. Standards have been 
gradually strengthened and will considerably reduce air pollution from cars and lorries over the next 
few years. The most recent step was taken by Directive 94/12/EEC, adopted in 1994, containing new 
emission limit values for passenger cars, applicable in 1996/1997. Directive 93/59/EEC has already 
tightened the emission regulations for light commercial vehicles with effect from 1993/1994. 
With a view to further emission reductions for and beyond the year 2000, Directive 94/12/EEC marks 
a new "multi-faceted approach" and is based on the following elements and measures: 
measures shall be designed to produce effects to meet the requirements of EC air quality 
criteria and related objectives; 
an assessment of the cost effectiveness of taking each measure shall be undertaken, taking into 
full account of the contributions made, inter alia, by traffic management, enhanced public 
transport, new propulsion technologies, and the use of alternative fuels- measures will include 
further improvement in the requirements of the car emission directive and complementary 
technical measures in the framework of specific Directives for the fuel quality and in-use 
vehicle inspection and maintenance. 
The Commission has initiated a number of actions aimed at preparing a proposal according to this 
multi-faceted approach. The tripartite European Auto/Oil Programme, involving the automobile and 
petroleum industries, is undertaking a test programme aiming at determining the most cost/effective 
combination of improved fuel and vehicle technologies to reach air quality objectives. 
Air quality modelling is being carried out to give an indication of the effect of various technical and 
non-technical measures - including traffic management and pricing instruments, public transport, 
new fuels and propulsion systems - on future air quality. A cost-effectiveness analysis of all these 
measures will help identify the main elements of future legislative proposals. 
Progress has been absent concerning co2 emissions from motor vehicles. The Council committed 
itself, in Directive 91/441/EEC, to decide on measures before the end of 1992 and there has been 
preparatory work for over two years (such as Commission Directive 93/116/EEC on C02 emissions 
and-fuel consumption of motor vehicles). One of the main problems here is that many sectors are 
directly involved - taxation and fiscal policy, transport, industry and environment - each with its 
own interests, divergent from, and sometimes difficult to reconcile with, that of others. Despite this 
there is broad agreement that a fiscal approach is the preferred route. The Commission's working 
programme for 1994 includes a proposal on the harmonisation of the structure of car circulation 
taxes and this will incorporate elements relating to co2 emissions. 
Directive 92/6/EEC requires lorries (85 km/h), buses and coaches (100 km/h) to be fitted with speed 
limiters, in part retroactively. It is estimated that this directive will not only improve safety, but will 
also reduce energy consumption (by at least 5%), noise and vibration. 
In the framework of Community legislation on roadworthiness tests, Directive 93/55/EEC sets 
minimum standards and criteria for emission tests on all vehicles. Given that a large share of 
emissions is caused by a small number of badly maintained vehicles, this directive is likely to have 
a significant impact. The Commission is financing a major research contract to look into possibilities 
to further reduce emissions from cars by ways of inspection and maintenance. 
19 
Broadening the Range of Instruments 
Financial Support Mechanisms 
It is estimated that, up to the end of this decade, some 300.000 million ECU will be invested in 
transport infrastructure projects by the EC and the Member States. This faces policy-makers with an 
important challenge: how to take advantage of this major source of funding to decrease the 
detrimental environmental impacts of planned transport infrastructures and to invest in sustainable 
mobility. 
Simultaneously, the Transport White Paper points out the enormous amount of investment required, 
in rail and combined transport, to achieve an appreciable modal shift that will improve the efficiency 
of the transport system and will lessen negative environmental impacts. More needs to be done, both 
at EC and Member State levels, to ensure that investments encourage these goals. 
The revision of the Structural Funds Regulations will ensure the integration, indirectly but 
nonetheless significantly, of the environment into transport policy, especially for the less-developed 
EC regions. Equally in the new Cohesion Fund Regulation (EC N° 1164/94, adopted in May 1994), 
transport infrastructure projects have to include environmental costs and be compatible with EC 
Environmental policy. 
The Greek authorities are undertaking important transport infrastructure works^ «Specially in the 
construction of the Athens metro* whose costs «re partly covered by £C Cohesion r%ods< Hew tram 
lines are being built while priority access lanes for High Occupancy Vehicles {buses) is gaining 
groutid< Furthermore 500 new buses have replaced some of the old flsek Xhess measures' îtaye 
reduced emissions and at the same time are making public transport a more efficient and attractive 
alternative to the private car for urban passenger 
The Economic Approach 
The absence of an adequate level of internalization of external costs (including environmental costs) 
in transport gives wrong price indications. This creates distortions in transport markets that 
especially favour road and air transport. Inevitably, growth in transport demand will exacerbate these 
problems. Although some progress has been reached in redressing these distortions, there has been 
no breakthrough in the C02/energy tax proposal. 
The Transport White Paper emphasizes the need to internalize increasingly and more appropriately 
external costs (including environmental costs). Council Directive 93/89/EEC, on the annual tax and 
the charging of transport infrastructure costs to lorries, marks a first step in this direction. The 
review of Community legislation on excise duties for mineral oil (Council Directive 92/82/EEC), due 
in 1994, will take environmental considerations into account and will be another occasion to 
internalize external costs. 
An economic approach is particularly important in tackling C02 emissions from transport. Transport 
is the second-most important C02 contributor, and is expected to see most co2 emission increase -
under a "business-as-usual" scenario - over the next 10 to 20 years. Little has been achieved so far 
in the way of limiting co2 emissions from transport. The proposed C02/energy tax would only have 
a marginal impact dn the price of motor vehicle fuel and thus on the general use of vehicles. 
20 
The potential of fiscal incentives to promote environmental objectives has been demonstrated by the 
experience on car emissions. Various Member States have used'fiscal incentives to promote the 
introduction of cars that meet new Community standards before their mandatory application, and a 
Community Framework Directive (89/458/EEC) was introduced for such fiscal incentive purposes. 
Similarly, the introduction of unleaded petrol has been greatly helped by fiscal incentives, and 
Directive 92/82/EEC sets lower minimum rates for excise duties on unleaded rather than leaded 
petrol. 
In France, the taxes on fuels and, petrol products in effect charge consumers in proportion to fuel 
consumption and are thus; closely linked to kilometres travelled as well ad to pollution emitted, in the 
summer of. 1993* a 30 centimes increase in tas fuels tax has mad» the French real rate of revenue 
from fuels the highest among the twelve EC Member States, Another example ôf fiscal instrument, 
again m France, Is the variation in highway toll rates to reduce congestion and thus traffic pollution 
emission Jeveïs. The system, now in use in the North-of-France highway, will eventually be applied 
to the whole French highway network % . . 
Scientific Research and Technological Development 
A range of initiatives to be promoted under the 4th EC Framework Programme for research and 
technological development (1994-1998) is designed to contribute to achieve sustainability in the 
transport sector. In particular, the specific programme on transport will cover both strategic research 
to provide the basis for decisions for further development of the transport system, and research on 
transport technology. Environmental sustainability is a key of the programme. 
In addition, there are several other RDT transport-related activities undertaken in other specific 
programmes which also have a strong environmental dimension: 
the Industrial and Material technology programme will support technological development for 
transport means; 
the programme on Clean and Efficient technologies will investigate energy applications for 
transport, in particular urban transport; 
the programme on Telematics will explore telematic applications for transport means and 
systems. 
Telecommunication technology» above all through tele—commuting and tele-working, is set to 
influence transportation processes* Thanks to information networks and telematics* people will be 
able to work away from the central office, reducing traffic into the big cities and towns. One of the 
"Tele-work >94" projects (Actions for simulation for transborder tele*wortc and research cooperation 
in Europe) is entitled *TeIeurba"$ which sets out to evaluate the efficiency of tele-work in urban and 
inter*urban traffte decongestion* Two other projects, "Clean" and "Environ", are designed to identify 
and illustrate the environmental benefits that could be produced by the introduction of advanced 
communications in industrial, commercial and business activities» as well as looking at the 
environment impact of advanced communications. 
21 
Shared Responsibility and Partnership 
In the field of urban transport, the Commission promotes shared responsibility and partnership 
through networks of European cities and regions. These networks include the OPET network on 
energy efficiency (THERMIE Programme), the CITELEC network on electric vehicles and the POLIS 
network on telematics and transport management (see above on "Scientific Research and 
Technological Development" section). These networks help in the diffusion of new concepts and 
technologies that could help-in reducing the environmental impact of transport. 
At Community level, the Sustainable Cities Project is an important element in the framework for 
the cooperation between the Commission and local actors on urban environment problems, including 
transport. A Conference on Sustainable Cities, co-organized by the Commission, in Aalborg in May 
1994, resulted in the signature of a Charter of European Cities and Towns "Towards Sustainability" 
by 80 cities from the whole of Europe. 
In March 1994, the Commission sponsored the Car-Free Cities Conference in Amsterdam where 
the car-Free Cities Club was launched. This club is composed of some 40 cities across Europe, 
committed to reduce car use. By working on common projects and exchanging experiences, local 
authorities can learn together and from each other on how to achieve sustainable urban mobility. 
The "Auto-Oil" Programme mentioned above is another example of partnership. 
Some important measures have been taken in maritime transport to implement and enforce 
legislation. On the basis of the Communication "A Common Policy on Safe Seas", an action 
Commission-Member States was adopted to enhance maritime safety and the protection of the 
marine environment. It is being implemented through various measures (eg. minimum requirements 
for vessels bound for or leaving Community ports and carrying dangerous or polluting substances, 
Commission proposals for Council Directives on common rules and standards for ship inspections 
and survey organizations and on the minimum level of training for maritime occupations, etc.) 
Changing Attitudes 
Reducing car use crucially depends on changing the attitudes of transport users. Both economic 
measures and the Commission's actions promoting shared responsibility, especially in the urban 
transport field, are important in this context. Progress in this field is slow and more action is needed. 
The Community has to rely strongly on Member States and regional and local authorities to raise 
awareness and implement solutions. 
The Dublin Transport Initiative looked at the special transport problems faced by the Irish capital city 
and widely consulted the public on this. Measures were taken to reduce private transport and increase 
the efficiency and attractiveness of public transport including 3 li$it railway lines» small buses and 
park and ride facilities. In the UK, as part of iht Transport Supplementary Grants Scheme^ local 
authorities cab now obtain funding for local authority transport packages that mm to improve public 
transport and manage the use of the car. /. 
22 
hi Italy, as well as maintaining the pedestrian Only access iônes inline historical Centre, the city of 
Bologna will» in the course of 1994» restrict access by reducing the number of centre zone access 
permits from 10Ô.ÛÛÛ to 40.000, As of 1 March 1994, only residents, public service vehicles and 
good deliveries and pick-ups can gain access through entrances that are electronically controlled 
There is also a system of Controlled parking for residents. 
Conclusion 
Progress towards sustainable transport has occurred in the mind of some policy-makers as they begin 
to perceive more clearly the need for integrating environment into the transport sector. Given growth 
trends in this sector, now is the time for this change of attitude to quickly move towards the 
operational stage, in terms of actual integration measures. Despite some progress in integrating 
environment in the decision-making process on infrastructures, much more needs to be done. 
Otherwise unsustainable growth in the transport sector, already a significant problem and concern 
today, will become the key environmental issue tomorrow. 
Transport growth has to be recognized as an obstacle to further economic development and a source 
of environmental problems. This is especially true for C02 emissions where growth trends are 
particularly difficult to tackle. Solutions need to be based on cost-effective measures and on 
reorientation of infrastructure planning. 
While initial steps have been taken, much more needs to be done in terms of internalising the social 
costs of transport, reorienting infrastructure policy towards the more environmentally friendly 
transport modes and promoting changes in transport behaviour. The considerable potential for further 
improvements in vehicles technologies and fuels should be fully exploited. At the same time, many 
of the changes required to achieve sustainable mobility will mean progress towards a more efficient 
transport system. 
At Member State level, there is a growing awareness of the costs of further traffic growth in terms 
of congestion and environmental damages and of the impossibility to extend infrastructure to adapt 
to transport demand. 
Some countries have set concrete targets to limit or reduce the impact of transport on the 
environment. Others see the expansion of their transport infrastructure and mobility as a crucial 
condition for their economic development and a necessary link between their markets and those of 
the rest of the Community. All, however, are confronted with the challenge to review their transport 
policies and put in place plans for making transport more environmentally sustainable. 
This orientation now needs urgent materialisation, as predictions show that growth in the transport 
sector is likely to be rapid and to outstrip growth in the other five sectors of the Fifth Programme. 
There is therefore a clear need to break the link between growth in transport and economic growth 
just as happened in the energy sector sometime ago. Only a change in attitude of both the transport 
policy-makers and the users can bring this about. If trends are allowed to be pursued unchecked, 
transport itself will become unsustainable. 
23 
VI. AGRICULTURE 
Introduction 
As the Fifth Programme made clear, the development of agricultural policy, based on reducing 
agricultural price support mechanisms and on accompanying measures, could prove beneficial if the 
interdependence between the role of the farmer, his land and the environment were to be taken fully 
into account. 
The present situation in agriculture has been determined by the 1992 reform of the Common 
Agricultural Policy (CAP). The reform came before the Fifth Programme. Nevertheless, the concept 
of integrating the environment into agricultural practices, already reflected in the 1988 Commission 
Communication that paved the way for the reform, has been incorporated in the new CAP'S agri-
environment measures. However the core of CAP, i.e. the Common Market Organisations remains 
to a large extent unchanged as regard environmental provisions. This means that in any future CAP 
reform, integration of the environment must start at the earliest planning stages, and affect the heart 
of Community agricultural policy. 
The integration of environmental consideration into agricultural policy 
Common market organisations (CMO) 
Some progress has been made in this key area of CAP that represents the greatest volume of the 
European Agricultural Guidance and Guarantee Fund (EAGGF) expenditure (97%). Ways of 
developing a more eco-conditional approach are currently being studied within the Commission, i.e. 
for environmental conditional ity to be applied to payments by hectare within CMOS. However, after 
the CAP reform, modifications in some CMO regulations have marked progress in this direction. 
As far as cattle and sheep premiums are concerned, the way has been opened for Member States 
to take steps to protect the environment "if they consider it necessary". This phrasing could imply 
that different levels of protection are applied for comparable zones and would result in distortion 
of competition. Extensification of beef production may result now premium payments have been 
reduced from 3 Livestock Units (L.u.) per hectare of forage area to 2 L.u per ha for the following 
years (however these are limits on premia, and cannot prevent farmers from exceeding actual 
stocking densities as originally proposed by the Commission). Member States are also authorized 
to restrict provision of the beef premium for farmers who do not comply with certain environmental 
rules (Regulation EEC N° 3611/93/). 
An important aspect of the CAP in relation to the market in arable crops, is the obligation to set 
aside land in the short term to benefit from cereal and oil seed hectarage premiums. In this context, 
positive environmental effects are also expected (as long as operations are monitored by the 
competent authorities in Member States) from the possibility to transfer set-aside obligations to 
environmentally sensitive areas (Regulation EEC N* 213/94/). 
To protect birds that have settled on set-aside land, the Commission has extended the period during 
which harvesting of set-aside land is prohibited from 1994/5 onwards. 
The Agriculture Council of December 1993 asked the Commission "to examine the relationship 
between compliance with the set aside obligation and the areas withdrawn from production with a 
view to afforestation and/or for environmental purposes". 
24 
In this respect, in July 1994 the Council took note "of the Commission's intention to allow Member 
States to compensate farmers, from national budgets, for the cost of additional environmental 
measures which exceed existing provisions under Regulation N* 1765/92 relating to price support 
mechanisms for arable crops. Such measures, currently under examination within the Commission 
could give farmers greater incentives to take steps to protect the environment while reducing 
production. 
With respect to markets that are to be reformed - wine, fruit, sugar and vegetables - thorough 
investigations are being carried out into the possibility of introducing environmental considerations. 
Moreover, the reform of prices support mechanisms already includes accompanying measures which 
closely integrate the environment (Regulation N° 2078/92, see below). 
As indicated above, the Commission has put forward a number of proposals which test the merits 
of cross compliance and of environmental incentives schemes. Member States have taken up these 
ideas to a very varying extent, but experience is nevertheless accumulating which will help in the 
development of these ideas and others as offer-and-bid systems for the provision of environmental 
services on farmland. 
Rural Development 
In the context of objective 5a (all areas of the Community) as defined in the Structural Funds 
revision, measures include aids for improving the viability of agricultural holdings, and premiums 
to maintain agriculture in mountainous and less favoured areas which, in some cases, are linked to 
compliance with the requirements of the environment (Regulation EEC N° 2085/93). 
Many measures concerning the environment have been established in the continuation of aid 
schemes, financed by the EAGGF. For example, farmers can benefit from investment aids towards 
measures that help protect the environment such as manure storage. 
In objectives 1 and 5b, programmes refer to investments in environmentally sound production 
techniques, maintenance of landscape and natural heritage, and the marketing of organic products. 
The 1993 Structural Funds Regulation requires an assessment of the environmental impact of each 
measure financed from the EAGGF, to respect the objectives of Community environmental legislation, 
and to associate national and local environmental authorities (see also the paragraph on Structural 
Funds). This is particularly relevant for the protection of wetlands. 
The Commission has proposed a regulation to set up a programme to preserve agricultural biological 
diversity through the conservation, characterisation and utilisation of genetic resources in agriculture. 
The Commission would provide 20 million ECU over 5 years for this programme. 
Change in consumption and production patterns 
At this stage, it is not possible to accurately assess whether the CAP reform is changing farmers' 
behaviour or whether lower guaranteed prices for large-scale cultivation encourage extensification 
of production. Lower crop prices and hectarage premiums providing guaranteed incomes have in any 
case reduced the incentive for intensive use of fertilizers and plant protection products. 
25 
Under a new regulation on agri-environmental measures (Regulation EEC N° 2078/92), 3670 million 
ECU are available for the period 1993-97 for the promotion of environmentally sound production 
methods and the provision of environmental services on a contractual basis. These are established 
by zonal programmes set up at Member State level. In addition, 1340 million ECU have been 
provided for improving the environmental balance in agricultural areas by promoting afforestation 
and improvement of forests (Regulation EEC N° 2080/92). 
If Member States comply with the Regulation's zoning obligation and.follow suggested practice, 
they can contribute to an improved environmental balance by afforestation in agricultural areas and 
by enlarging C02 absorption capacity. 
The development of organic agriculture is also encouraged in Member States but until now the 
limited financial aid offered is marginal in terms of its effect in relation to total farmland. 
It is also important to link agri-environment measures to the implementation of environmental 
directives, especially to those relating to water, nitrates, birds and habitats. They cover sensitive and 
vulnerable areas, designated by Member States. When applied to particular areas, they encourage 
agricultural practices which help protect water, flora and fauna. These directives can only be 
effectively implemented if supporting measures are perceived as sufficiently attractive. 
to Ireland under the new Rural Savironmeat iftotectfon Scheme, \far*pr$ nave to present Integrated * J 
plans and to undertake compulsory eftviroitmefttal education* It Is nopèo* liât one. tnird of all 'fimiers ^ 
* will join ihe schema Se^eratLander m Oermany hayç taken msasarss to entourage toners t<? use *>: 
fewer chemicals on their land. , , ;• -
>*S\' *•. <&'•**. 
Directive 91/414/EEC which entered into force in July 1993 defines the conditions under which 
plant-protection products for use in agriculture (PPP) may be authorised by Member States for 
placing on the market. Detailed criteria for the authorization of products are laid down in its annex 
VI (the so-called Uniform Principles for Evaluating PPPs). Although this Directive will ensure that 
only those products meeting with health and environmental quality criteria will be on the market and 
used, additional measures are still necessary to ensure full protection and a sustainable use of PPPs. 
The Directive also provides for an evaluation procedure of active substances at Community level. 
A review programme for the progressive réévaluation of active ingredients already on the market 
has started under Regulation EEC N° 3600/92 and will last for ten years. This Directive is a good 
example of integration because it links authorization on plant protection products to environmental 
objectives, in particular water quality standards. 
To address the specific .objective to reduce the use of chemicals in agriculture to tUt point where 
natural processes are not jeopardized* the Commission, in coliaboratbn with the Butch Ministry of 
the Environment, has established & 3*ye*r programme desigaed to ^complete & detailed review of 
pesticide use m the EC, and to identic the most effective combination of policy options to ensure an 
environmentally sustainable use of pesticides. Results «re «xpected at the end of 1995» 
26 
Implementation of environmental Community legislation 
Progress is slow in implementing the Nitrate Directive (91/676/EEC). Only some Member States 
have complied with their obligations, in particular: 
by producing voluntary codes of good Agriculture Practice due by December 1993, 
by monitoring their ground waters and surface waters, 
by identifying "vulnerable zones" where the codes will become compulsory and where there 
will be further restrictions on the use of fertilizers ( June 1994). 
Implementation of the Habitats Directive is continuing with the setting up of a network of special 
conservation areas (Natura 2000) and with the compilation of habitat and species inventories. 
The experience gained with the Birds Directive and relevant Community financing is useful (ACE, 
ACNAT, LIFE NATURE), especially in terms of sharing knowledge and management techniques for 
protected areas. 
'•• experiences of pibtï^ojei^ developed within the ACNAT financial instrument &>r the protection of 
s" Vs 
Broadening the range of instruments 
New ways, of using financial instruments have been chosen in the context of agri-environmental 
policy. Regulation N* 2078/92 constitutes a positive incentive for the provision of environmental 
services on a contractual basis. The agri-environment measures also provide support for farmers' 
training and for demonstration projects. In addition, the Commission launched, on an experimental 
basis, a farm exchange visit programme to promote exchanges of experience between farmers. 
Two recent agricultural research programmes, CAMAR and AIR, comprise a number of research 
projects on extensification of agricultural production and environmentally sound production methods. 
These programmes aim at the promotion of European research cooperation, demonstration projects 
and technical development in the EC and the European Economic Area (EEA). 
Some Member States are improving the management of water resources, in terms of both quality 
and quantity, by involving farmers who have particular responsibility in this respect. 
hi me. United Kingdom, an Important information ma education campaign by the Agricultural 
Development an,d Advisory Service (A&jkk). succeeded In «sutttng water pollution jby advising 
farmers on use of fertilisers. In France, it was recently decided that farmers should contribute to 
water cost? $pm which anil now they were exempt $& Spain (Qastilla de & JM^cfca), ltaje*& an? 
gtven premiums under Regulation 2078/92 to tMucQ or halt the use of pumped ground water to 
preserve wetland m a national park ïn me Net&erland&a new eco-label &r agricultural pàâwcts Is 
m preparation by the Ministry ^^Agriculture. 
27 
Partnership and shared responsibility 
Recognition is growing of the farmer's role as manager of rural areas. Agri-environmental measures 
provide an opportunity for partnership between the agricultural sector and society. They also allow 
environmental and agricultural departments to work closely, in order to deal with particular issues, 
as is the case in the Commission and in certain Member States . 
In some Member States, agricultural organisations together with governmental representatives and 
environmental organisations have developed codes of good agricultural practice, and other initiatives 
aimed at guiding farmers towards the use of more environmentally-friendly substances and irrigation 
methods. 
In the Netherlands» Environment and Agriculture Ministries have set up a joint team'on manure: 
management ïn France» programme? such as FERTIMIEU and mMmJ Involve farmers in the' 
elaboration of best agricultural practices. -' - -
The Nitrates and Habitats Directives can be effectively implemented only if real communication 
takes place ensuring active participation of all actors. The Natura 2000 Network provides a means 
of dialogue for the social actors, particularly from the agricultural sector, which play a major role 
in nature conservation in Europe. 
Conclusion 
The integration of environmental considerations into agriculture should be relatively easy, compared 
to the other four sectors of the Fifth Programme, because the necessity to reduce over production 
corresponds to the environmental objective of reduced intensity of land use. This explains why the 
CAP has already introduced new environmental measures. Although the extent of their environmental 
impact remains to be assessed, these agri-environmental measures constitute a first and very positive 
step towards full integration. 
Mr. Steichen, Commissioner for Agriculture and Rural Development highlighted these issues by 
stating that: "Production had to be adapted to demand, not only in terms of volume but also in terms 
of quality and price. Competitiveness was to be improved to stop, or better still, to reverse the 
continuous loss in consumption. Secondly, future production should take place in an environmentally 
friendly manner while budget resources should be distributed in a more equitable fashion to keep 
sufficient people in agriculture especially in sensitive areas that still very much depend on 
agriculture for their regional economy. " 
However, the pace and extent of integration must be strengthened in future adjustments of the CAP. 
Indeed, with the experience gained under the current CAP reform, such efforts may become a test 
for integration of the environment into the agriculture sector. Thus it is crucial that the integration 
process begins as soon as possible. In the final analysis, however, the success of this process 
depends not so much on specific Commission proposals as on how Member States react to them. 
What is urgently needed is to increase the share of EAGGF devoted to measures complying with the 
requirements of the environment. 
*** 
28 
VIL TOURISM 
Introduction 
Neither the Treaty of Rome nor the Treaty on European Union expressly confers specific 
Community competence in tourism (a report will be presented in 1996 to Member States on whether 
the Treaty on European Union should cover tourism). Tourism as an economic activity does however 
cut across many different Community policies, on which it has an influence and by which, in turn, 
it is influenced. Activities to implement the Fifth Programme in the tourism sector involve not just 
one Community policy area, therefore, but several including environment, agriculture, industry, 
energy, transport and regional policy. 
Integration of environment considerations 
Environmental considerations are most notably linked to tourist activities in regional development 
policies. The recent reform of the Structural Funds included specific measures to ensure that 
environmental considerations are included in the elaboration of programmes and projects. In 
addition, existing or revised legislation in relation to environmental impact assessments, bathing 
water, urban waste water and habitats has an important integration effect. 
The Commission is taking steps to help and increase coordination and cooperation in the tourism 
sector through the Action Plan to assist Tourism 1993-1995. The Plan aims to develop tourism by 
promoting information and mutual exchanges between the different parts of the industry and to 
coordinate tourism activities within the Commission and with the Member States. The Plan, with 
a total budget of 18 million ECU, sets out a number of measures relating to the environment and 
seeks to support a range of initiatives concerning the environmental aspects of tourism. 
The first Report on the implementation of the Plan notes that more than half the amount committed 
for 1992 and intended as an initial response to the Plan, was devoted to the promotion of sustainable 
tourism„(23 innovative and transnational projects). The Report also notes that certain policy areas 
have already taken environmental considerations into account: regional policies, agriculture, research 
and development. 
Under the Plan, initiatives include support to projects which: 
inform and increase the awareness of tourists and suppliers of services about the interaction 
between tourism and the environment, in particular through the creation of a European 
Tourism and Environment Prize, due to be awarded for the first time in 1995; 
aim to reconcile tourism and nature protection at local or regional level, in particular coastal 
and mountain areas, nature parks and reserves , eg. by measures for the guidance of visitors; 
encourage the development of networks involving transnational exchanges of experience, 
including experience of environmental problems and their possible solution through visitor 
management at sites; 
encourage other environmentally friendly tourism in relation to transport and related areas. 
These measures are also strengthened by a commitment to protection of the environment throughout 
the Action Plan. 
29 
The strong emphasis on environmental considerations and sustainability reflects growing concern 
about the management and development of tourism in the light of increasing numbers and therefore 
greater pressures on both built and natural resources. 
As a next step, the Commission is due to prepare by the end of 1994, a Green Paper on Tourism 
in which environmental considerations and the concept of sustainable tourism will be explored 
Changing attitudes and patterns of consumption 
With growing consumer consciousness of environmental issues, there is evidence to suggest that 
tourists are increasingly aware of issues of environmental quality in tourist areas and of the impact 
tourism has on holiday areas. Under the Action Plan to assist tourism, a Tourism and Environment 
Prize is being created aimed at identifying and publicising destinations which show outstanding 
practice in the planning and management of sustainable tourism development. 
Broadening the range of instruments 
The Cohesion Fund, introduced by the Council on 31 March 1993, finances investment relating to 
the environment and to transport, both of which have a direct relationship with tourism, in four 
countries whose economy is dependent on tourism - Spain, Portugal, Greece and Ireland (see section 
covering Structural Funds). 
30 
To encourage an integrated approach towards coastal zones, the Commission is currently preparing 
a Communication on a Community Strategy for the Management and Protection of Coastal Zones 
that is likely to focus on the need for strategic integrated management plans, including the 
development of databases, exchange of knowledge, the education and mobilisation of the public. 
At the Informal Environment Council in Santorini in May 1994, Ministers identified coastal zones 
as a priority area and underlined the importance of carrying out integrated management plans. They 
also underlined the need to-explore further the usefulness of economic and fiscal instruments, and 
for further action to raise awareness and change the behaviour of tourists. 
As far as urban areas with strong historical interest are concerned, Ministers emphasised the 
importance of visitor flow management and control of noise. Such actions are foreseen in the 
framework of the Commission's sustainable cities project (see chapter on Transport). 
The French Environment .Ministry; and the French iteration ^regional parks :are to $!ga an 
^gp^ment to support a training programme for those 'involved in the tourism industry which 
highlights the value of the natural heritage in regional parks, lois programme is intended to 
encourage sustainable tourism and employment over a three year period 
Conclusions 
Work specifically related to the enviromnent under the Action Plan to help Tourism will contribute 
to increasing awareness and offer solutions to particular planning and management issues. Within 
the general framework of the Action Plan, environmental protection remains an important objective 
and needs further development in the context of the Green Paper. Nevertheless, initiatives on tourism 
at Community level will by nature remain limited given that the sustainable management of tourism 
implies the integrated management at the national or local level and requires the involvement of all 
actors working together in a spirit of partnership and shared responsibility. 
*** 
VIII. THE INTERNATIONAL DIMENSION 
The Community's role in the wider international arena 
The Treaty on European Union recognizes the increasing importance of the international dimension, 
stating that Community policy on the environment shall contribute to "promoting measures at 
international level to deal with regional or worldwide environmental problems". It also lays down 
the basis for cooperation with third countries and with international organizations. 
With the Fifth Programme acting as a key factor in the move towards sustainability and with the 
integration of environmental requirements in its cooperation with third countries, the Community 
is playing a major role in the establishment of sustainable development policies. It took part as a 
full participant in the United Nations Conference on Environment and Development (UNCED) and 
participates actively in the Commission on Sustainable Development (CSD). In June 1994 it presented 
its activities to its second session. The Community is a party to all major international conventions 
including those dealing with global issues and has significantly reinforced its cooperation on 
environment and development issues with developing countries. 
31 
Cooperation continues through bilateral ties with other industrialized countries such as the USA, 
Canada and Japan, including bilateral consultations on environmental issues on an annual basis. 
These consultations cover not only coordination of positions for multilateral fora such as CSD and 
the global conventions, they also considerably advance work on mutually acceptable data and 
processes for chemical substances, vehicles and biotechnology. In addition, contacts with China and 
Korea in the field of environment have been recently greatly intensified with a view to specific 
cooperation. 
The agreement on the European Economic Area with Austria, Finland, Iceland, Norway and Sweden 
is an important tool for harmonisation of environmental legislation and for cooperation on 
environmental issues of common interest. Similarly, the implementation of existing EC environmental 
legislation, as part of the Community's "acquis", by Austria, Finland, Norway and Sweden has been 
addressed in the accession negotiations which were successfully concluded in March 1994. Acute 
environmental degradation and a clear recognition of the transborder effects of pollution have 
boosted cooperation with Central and Eastern European countries and the Republics of the former 
Soviet Union. 
Follow-up of international commitments 
Agenda 21 and UNCED follow-up initiatives 
The Fifth Programme is the Community's main strategy for implementing the objectives of Agenda 
21. Although the Programme was drawn up before June 1992, it was prepared in the light of the 
preparatory work that led to Agenda 21. Both documents are based on the same principles. 
Moreover, as explained in the report from the Community presented to the CSD in May 1994, 
Agenda 21 commitments in relation to third countries are carried out through the various éléments 
of the regional and bilateral cooperation policies of the Community. The 3rd and 4th Community 
Framework Programmes on Research and Technological Development also address many issues 
included in Agenda 21. 
Climate change 
On 21 December 1993, the Community ratified the UN Framework Convention on Climate Change 
(FCCC) adopted at UNCED in June 1992. It now must submit its initial communication as foreseen 
by the Convention by 21 September 1994. The Commission has already prepared a plan of action 
at European and national levels to demonstrate how the EC and its Member. States will collectively 
reach the objective of stabilization of C02 and other greenhouse gas emissions. 
However, even if all commitments were fulfilled on time (both under the FCCC and the European 
strategy), it is clear that further action will be needed to achieve the stabilization, and then reduction, 
of greenhouse gas concentrations in the atmosphere at a level that would prevent dangerous 
anthropogenic interferences with the climate system. 
Biodiversity loss 
Implementation of the Biodiversity Convention by the Community (ratified in December 1993), will 
be based on the Habitats Directive (Nature 2000 network, inventories etc.), the implementation of 
other Community legislation relating to nature protection , (the "birds" directive, the CITES 
Regulation etc.), and the translation into practical terms of the links that exist between measures to 
protect biodiversity and measures in other sectors, in particular the CAP. 
32 
Presently, it is vital for decision-makers to become more acutely aware of the stakes involved in the 
preservation of biodiversity, which still figure low on their lists of priorities. 
Forests 
The Community remains committed to a legally binding convention on the management, 
conservation and sustainable development of all types of forests, it participates in regional activities 
such as the Ministerial Conference on the Protection of Forests in Europe (Strasbourg 1990, Helsinki 
1993). Consideration is being given to demonstrate how to move towards a system of harmonized 
certification of timber, dealing with all types of woods, on a voluntary basis, with a gradual 
introduction and temporary aid to committed producer countries. 
The Commission has recently proposed a regulation on actions in the field of tropical forests. An 
ambitious pilot project on tropical forests is already under way in Brazil (Amazon). It intends to 
prepare, in the near future, a Communication on forests. 
Ozone layer 
The Community has implemented most of the measures adopted under the Montreal Protocol. A 
proposal for a regulation dealing among others with controls on HCFCs and methyl bromide is 
currently under discussion and is expected to be adopted before the end of 1994 to fulfil the most 
recent amendments to the Protocol. This will introduce stricter measures than those adopted at 
Copenhagen, to ensure better safeguards of the ozone layer, and to give clearer technical and legal 
signals to industry, to boost investment in environmentally friendly technologies. 
By 1995, there will be a total ban in the Community on CFCs production except for certain essential 
uses. A list of these uses (and of the acceptable quantities of newly produced CFCs) is to be 
published this year, one year earlier than required under the Protocol. 
Transboundary movement of waste 
The Basel Convention was ratified by the EC and its Member States (except Germany and Greece) 
during 1994. A Regulation on the supervision and control of shipments of waste within, into and 
out of the Community (Council Regulation 259/93/EEC), was adopted as the instrument to implement 
the Convention at Community level and is applied from 6 May 1994. It bans the export of hazardous 
wastes to developing countries and allows exports for recycling only to those countries that are 
signatories to the Basel Convention and/or have a bilateral agreement with the Community. 
Under the new cooperation arrangements under the Maastricht Treaty, the Community and Member 
States are examining cooperation between justice authorities in tracking illicit movements of waste. 
Trade and environment 
Since the preparation of the Fifth Programme trade and environment has become an important 
international issue. The Community is now actively participating in the work of international fora 
such as UNCTAD, GATT and OECD to make trade and environmental policy mutually supportive. 
In the GATT Group on Environmental Measures and International Trade, the EC put forwards specific 
proposals to clarify the relationship between GATT principles and concepts and trade provisions in 
multilateral environmental agreements. 
33 
The Council adopted in May 1993 a resolution on environmental protection and international trade 
listing the basic objectives to be achieved in the last phase of the Uruguay Round negotiations in 
order to improve the interaction between international trade and environmental policies in favour 
of sustainable development. These objectives were effectively achieved at the recent Marrakech 
Ministerial Conference, in particular with the decision to establish a Committee on Trade and the 
Environment within the World Trade Organisation. Other Uruguay Round agreements, including the 
agreement establishing the WTO, address environmental protection and sustainable development 
requirements. 
The Commission adopted a Communication to the Council of 1 June 1994 on the role of the 
Generalised System of Preferences (GSP) for the period 1995-2004 which includes an environmental 
clause. This incentive clause would be used to promote products or production methods 
internationally approved as consistent with the objectives set out in international Conventions, eg. 
Ozone, Climate and Biodiversity, as well as Agenda 21. This clause would initially be confined to 
tropical timber products, a sector in which some international criteria have already been developed 
by the International Tropical Timber Organisation (ITTO). 
Integration of environmental requirements into development cooperation policy 
Noticeable progress has been made in integrating environmental requirements into cooperation 
policies with third countries. The Community finances environment oriented projects on a more 
regular basis. Environmental concerns are now reflected in most of the bilateral cooperation 
contracts established between the Community and its partners all over the world. 
Through exchanges of experience and analytical studies, cooperation agencies, including the 
Commission, are gradually developing methodologies to integrate environmental conditions in their 
selection of projects. In particular, guidelines and procedures have been established to assess the 
environmental impact of programmes and projects, funded by the Community. 
In a resolution adopted at the end of 1992, the Council established the guidelines of the EC's 
development cooperation policy in the run-up to 2000. A main objective guiding the cooperation 
includes "the sustainable economic and social development" of developing countries. The Council 
emphasized the need to contribute to the measures agreed at Rio, in particular Agenda 21. The 
sustainable economic and social development of the developing countries is also listed in the Treaty, 
among the basic objectives of Community policy in the sphere of development cooperation. 
It was unfortunately not possible to reach an agreement on a common and coordinated framework 
for the implementation of the financial commitment (3 billion ECU) made in Rio (such as burden 
sharing, period covered, portion of new and additional resources). It was decided that Member States 
and the Commission would report directly each year on an ex-post basis to the Commission on 
Sustainable Development. Although the Commission regrets that, due inter alia to budgetary 
constraints, insufficient progress has been made in this respect, it remains ready to participate in the 
implementation of this initiative. 
As reported in the annual report to the CSD, the Commission committed 770 million ECU in 1993, 
following initial assessments, in the following areas: 
- Energy 69.0 
- Biodiversity 36.0 
- Forests 96.7 
34 
- Rural Environment and Desertification 251.0 
- Water 154.0 
- Urban Environment 30.0 
- Human Development 68.6 
- Other . 35.0 
This data relates to EC financing under Lomé Conventions, the Asia/Latin American Programme, 
Mediterranean Programmes and other items covered by the EC budget. 
Lomé 
The revised Lomé Convention in 1989 introduced environmental protection and sustainable 
development as part of its objectives. Four priority areas were identified by the Council in May 
1993 for enhanced cooperation towards sustainable development: poverty alleviation, health, 
education and training, and food security. In the area of "population," 20 ACP countries have 
introduced demography programmes within National Indicative Programmes under LOME IV. A 
common EC position on the issue was presented at the International Conference of Cairo of 
September 1994. 
In June 1993, an "Environmental Manual" establishing specific procedures for the incorporation of 
environmental considerations in all development projects and programmes was introduced, and 
works as a "User's guide" for ACP countries and Commission services. Seminars have been 
organized within the Commission to heighten staff awareness of the links between environment and 
development. 
The Asian and Latin American countries (ALA) / The Mediterranean 
In the case of the Asian and Latin American countries and the non-Community Mediterranean 
countries, there has been progress towards implementing environmental considerations into both 
policy and operations. 
Environmental impact assessments (EIA) have now been introduced in cooperation programmes for 
Asia, Latin America and Mediterranean countries. Based on OECD best practice, procedures have 
been designed for Commission staff to ensure EIA is carried out in a systematic way. Projects are 
classified under four categories according to their potential impact and to the type of EIA needed. 
However, such a project by project approach is of limited use for it does not offer a complete view 
of what major environmental problems and government policies are in a particular country. Project 
by project approach will be supplemented in the near future by a general approach. 
Regarding projects in Asia and Latin America, many projects dealing with environment have already 
been launched: eg. study on air pollution in Monterey (Mexico), master plan for treatment of solid 
toxic waste in Manila (Philippines). At least 10% of technical and financial assistance resources are 
to be devoted, during the 1992-1996 period, to projects and programmes with a primary 
environmental objective. Criteria to determine which projects are "environmental" are being 
currently developed. Progress has been made on a methodology to make monitoring more 
systematic. As far as financial resources are concerned, the budget in 1994 will be roughly 12 
million ECU. 
35 
Projects for the Mediterranean region deal mostly with water management. 115 to 120 million ECU 
have been earmarked for environmental programmes in the 1992-1996 period, either for direct 
actions (pilot projects and training) or for reduced interest loans by the European Investment Bank 
provided to Mediterranean third countries. In addition, these countries benefit from the bilateral 
financial protocols that, in most cases, include a considerable environment component. 
Central and Eastern European countries (CEECS) and the Republics of the former Soviet Union 
Cooperation between the EC and the CEECs is important given the existence of severe environmental 
degradation in many regions of CEECs, which have an important impact on the EC itself, and because 
their new democratic governments have highlighted sustainable development issues as a priority 
during economic reform and liberalization. 
From its inception, the environment has played an important role in the EC's PHARE programmé. 
Lately environmental concerns have been further integrated in the cooperation between the EC, the 
CEEC and the New Independent States through the TEMPUS programme which is PHARE's instrument 
for developing and restructuring higher education in CEECs and in the former Soviet Union. A 
significant number of exchanges (teachers, education planners, training experts, etc.) have taken 
place within the environment/sustainable development sector. 
approach to,ihe-env^ Into ait.TACiS sectors and has lead to a strongienergy r; ; 
saying and energy efficiency ritogiamme* a very large nuclear safely.programme and-thè integration \,\ 
? ^gâctiréï^ farming todiafyi^^ 
M^gcnjcitflNigW bonVtAd$ and i'HAk^'aiiacaW^ million £$g îô/'axprôjec.t'%; • 
aimed at providing the riparian,«fates of Georgia, Ukraine and Russia as well,as Bulgaria-and 
Rumania with policy legal, institutional, technical and financial Rapport for the establishment of an 
operational frameworks reverse the process of environmental degradation» protect the environment, 
and contribute tethe sustainable use ôf natural resourced •/ \ ' > s % s 
The second pan-European Conference of environment Ministers held in Lucerne in April 1993 
consolidated the wider "Environment for Europe" process instituted by the Dobris Conference in 
1991. The Environment Action Plan approved in Lucerne aims at developing cooperation between 
Eastern and Western countries in the field of policy reform, institutional strengthening and 
investment related activities. 
The requirement set out in the Fifth Programme which calls for increased technical assistance for 
the formulation and implementation of national and regional programmes for sustainable 
development through institutional training, and for increased public health and environment 
awareness in government, local and regional authorities is fully matched in the EAP. 
In Lucerne, the decision was taken to organise: 
a task force to promote institutional capacity building, including management capacity, training 
and education, and 
the Project Preparation Committee (PPC) to improve the rate of environmental investments in 
CEECS. 
36 
Conclusion 
In the light of an already well established legal and strategic framework for promoting sustainable 
development and for implementing its UNCED commitments (Treaty on European Union and the Fifth 
Action Programme), the European Union must continue to play a leading role in the UNCED follow-
up process. 
The Community's agenda Includes the following priorities: 
Effective implementation of all relevant international environmental conventions, including the 
Convention on Desertification to be adopted in June 1994. 
Active involvement in the work of the CSD to ensure the successful conclusion of the overall 
review of the implementation of Agenda 21, in time for the 1997 special session of the UN 
General Assembly, and to reinforce some elements of the UNCED outcome (eg. Statement of 
Forest Principles whose implementation will be reviewed at the 3rd session of the CSD). 
Participation in the work to be undertaken in various international fora (WTQ Trade and 
Environment Committee, UNEP, UNCTAD) to develop a positive interaction between 
international trade and environmental protection. 
At the same time the Community, through its development cooperation policy, should continue and 
intensify its assistance to developing countries in the field of environmental protection, with a view 
to contributing to the implementation of the UNCED outcome and to the emergence of an effective 
worldwide partnership for sustainable development. 
In relation to the CEEC countries, increased emphasis on cooperation needs to be developed 
recognising the importance of finding solutions to some of their most pressing environmental 
problems and the role this can play in alleviating the Community's own environmental problems. 
* * * 
IX. BROADENING THE RANGE OF INSTRUMENTS 
Introduction 
The Fifth Programme lays particular emphasis on the fact that in order to bring about substantial 
changés in current trends, practices and attitudes and to involve all sectors of society in line with 
the principle of shared responsibility, a broad mix of instruments needs to be developed and applied. 
There will be a continuing need for legislation and as Annex I to this Report indicates, legislative 
measures in the field of environment have continued to be proposed by the Commission and adopted 
by Council over the past two years. In line, however, with the Fifth Programme and with the 
conclusions of the European Council of Edinburgh, the number of proposals on the environment has 
decreased. Moreover, many legislative proposals at EC level now deal with updating existing 
legislation or with framework directives that, in due course, will replace existing detailed legislation. 
.37 
Improvement of environmental data and adaptation of statistics 
Eurostat, National Statistical Offices, Environment Ministries and other Agencies are trying to keep 
up with the pace of environment policy. Their efforts have now resulted in detailed publications 
covering the Community in its entirety. 
In Luxembourg $ïG*BW -^Système tl'hiforrnation géographique sur î*environnement) was set up to 
establish environmental information and data and to integrate this data in other pc-ltcy-areâs. A 
computer system integrates geographic information system on the environment with all other 
information systems On administrative procedures for environmental protection. SK>ENv aïm> at 
optimizing management monitoring» Implemenfationand following-up environmental policy-making* 
Several priorities sucfi a$ environmental services and structures^ and modernization of monitoring 
networks correspond to those under theilPE programme. The sykem. wifl eventually become the basis 
for all df LuxemÊOurg environment policy both at EC and ât national ï&iûV fi will also provide the 
link with the. European Environment Agency Network 
Better information on the environment contributes to the implementation of the Fifth Programme. 
It will be important to introduce the economic dimension into environment information systems on 
which basis the costs and the benefits for society of policy options can be estimated. 
The 4-year development programme (1994-1997) relating to the environmental component of 
Community statistics is about to be adopted. Within this programme, the SERIEE system (European 
System for the Collection of Economic Information on the Environment), developed by Eurostat, 
is now entering the stage of application in specific areas. Concrete proposals on waste and 
environmental expenditures statistics are to be presented in the second half of 1994. 
The European Environment Agency will have an important role to play in this field. The decisions 
on the seat of the EEA (Copenhagen), on its first Director, and on its budgetary and first multi annual 
work programme, are all very important steps in the Creation of an institution able to handle, 
compare and render compatible, the large and necessary amount of data in order to exploit the vast 
knowledge acquired by natural science in the last decades and to make it accessible to decision 
makers at EC level and elsewhere. 
In the spring of 1994, the pan-European report on the State of Environment for Europe, a joint 
effort of the Task-Force on the European Environment Agency (EEA), of national institutions and 
various international organisations, was finalized. 
Scientific research and technological development 
Over time, the EC's main research funding and policy instrument - the four year framework 
programme - has given emphasis to the integration of environmental concerns into its activities. 
Protection of the environment and improvement in the quality of life are already important 
objectives of current EC R&D, within the third Framework Programme (FP3), which runs until the end 
of 1994. These objectives are considerably reinforced in the fourth Framework Programme (FP4), 
both through its overall commitment to promote sustainable development, and through the substantial 
increase in financial resources allocated to environment. 
38 
FP4 will considerably strengthen the integration of environmental concerns into EC R&D across the 
board, as well as provide scientific support for the integration of environmental considerations into 
sectoral policies. One of the three guiding principles is "meeting the needs of society and promoting 
sustainable development. " 
EC Environment R&D provides a major contribution to broadening the range of environmental 
instruments by improving assessments of the quality of the environment, increased understanding 
of environmental processes and the impact of human activities; the development of sustainable, new 
technologies and products, and environmental improvement of existing production processes; and 
an improved scientific basis for regulatory actions. 
EC environment-related research is particularly strongly based on partnership and on shared 
responsibility. For example, the main emphasis is on the European contribution to global change 
research, in partnership with national efforts. In this regard, the European Network on Global 
Change Research (ENRICH) is intended to support research coordination and networking in this field 
throughout Europe and beyond. 
Within the Environment R&D Programme, the links between societal attitudes and the driving forces 
for new patterns of production and consumption, are being clarified, and work is to be undertaken 
on indicators of sustainable consumption. There is also a considerable emphasis within FP4 to 
address" the R&D issues arising from the White Paper on Growth, Competitiveness and. Employment, 
and in particular its Chapter 10. 
EC Environment R&D provides significant support for the application of environmental legislation and 
its enforcement in three distinct ways, by improving the scientific basis for environmental regulation, 
by developing improved instrumentation and monitoring techniques and by developing new 
production processes and products, as well as environmental abatement technologies. 
There is a strong international dimension in environment related EC R&D. First, the most significant 
component of EC environment R&D is to address global/regional environment issues, that extend well 
beyond the boundaries of the Community. Secondly, the EC Environment R&D Programme is open 
to participation by all European countries, on a project-by-project basis. Finally, research on 
environment and on sustainable development issues are a vital part of EC research cooperation with 
"third" countries. It should be noted that the developing ENRICH Network includes all European 
countries as well as several African nations. 
Environment concerns are also covered to a large extent in other RTD specific programmes of the 
4th EC Framework Programme which are designed also to contribute to the application of the 
principle of Best Available Technologies (BAT): 
one of the key objectives of the programme on Industrial and Material technologies is to 
increasingly integrate environmental requirements and the human dimension into industrial 
processes and products, taking their entire life cycle into account; 
one of the major focuses of the programme on Clean and Efficient Energy technologies will 
be on renewable energies; 
39 
the exploratory activities of telematic application for the environment will devote its effort to 
support the instruments needed for environmental monitoring. Research worlewill concentrate 
on automatic warning and monitoring systems concerning pollution levels in the atmosphere, 
rivers or seas; 
pre-normative environment related research (for trade as well as for legislation) will be 
supported by the programme on Normalisation, Measurements and Testing; 
finally the LIFE Science and Technology specific programmes will also cover relevant 
environmental related issues such as: environmental health, environmental acceptability of 
biotechnologies, etc. 
Environment-related R&D, at Member State level, stands to benefit from a stronger EC R&D 
Framework Programme. Although there are many national research programmes in this field, better 
coordination between them and more funding would increase their effectiveness both for research 
and environment policy purposes. Examples of such programmes range from research in coastal 
zone management through the assessment of air pollution effects and chemical safety testing. 
Although there is à wide variety of coastal types in Europe, sufficient commonality exists to permit 
the results of national coastal zone research programmes such as the UK LOIS (Land-Ocean 
Interactions Study) and French PNOC (Programme National d'Océanographie Côtière) to be used 
elsewhere. The ELOISE (European Land-Ocean Interactions Studies), initiative of the Commission 
serves not only in integrating programmes such as LOIS and PNOC into a larger framework but also 
as a model which other Member States can use when planning coastal zone research programmes. 
In the assessment of air pollution effects, the publication of a series of methodological manuals over 
the years by the Commission on exposure assessments, effects assessment, study designs, etc. has 
been instrumental in harmonizing studies in the Member States and thus improving the 
inter-comparability of data throughout the Community. This has resulted in increasing the statistical 
power and scientific value of individual studies and identifying more clearly the causes and 
consequences of air pollution at regional scales. 
Sectoral and spatial planning 
A key issue today is the integration of environmental considerations into town and country planning, 
particularly with respect to mobility, land use, regional diversity, urban growth and desertification. 
Environmental authorities are rarely accepted as an integral part of long-term strategic planning processes. 
Several Member States have specific framework regulations to protect environmentally sensitive areas, such 
as coastal and mountain zones. However, in practice, due to frequent derogations, these regulations are not 
always complied with. Furthermore, the move towards decentralised responsibility for land use authorizations 
is not always beneficial from an environmental perspective as local authorities often find it hard to withstand 
pressure from economic actors, particularly in times of recession and unemployment. 
40 
This underlines the need for wider, framework measures that ensure a more consistent environmental policy, 
compatible with the Internal Market. Such measures are needed at the'hational, but also at the Community 
level, respecting the principle of subsidiarity. Examples can be found in regional development policy (see 
relevant section in this Report), in legislation such as the Habitats Directive and in the Directive concerning 
environment impact assessment which affects town and country planning and management policies. 
Under the UK, Planning>and Compensation Act of 19Q1, each District and Borough must produce a 
local plan for the whole of its area* When preparing their plans* local planning authorities are-
required to take environmental Considerations into account In November t$>93, the UK Government 
published Environmental Appraisal of ttevetopment Plans: A Oood Practice Outde to provide advice 
to local authorities to meet this requirement In Portugal, A 1991 BeereC Stipulates that integrated 
management plans have to be drawn up and approved for all coastal areas* Tliese plans are' intended 
to cover all aspects of activity in coastal areas. 
Environmental Impact Assessment 
Following a report published in 1993, on five years' experience of the directive on impact 
assessments (85/337/EEC), showing that Member States found it difficult to apply and that many 
practical problems had been encountered, the Commission proposed the revision of existing 
legislation. The proposed revision clarifies the criteria to be applied in projects submitted for impact 
study and the content of these studies, and integrates the principles of the Espoo Convention 
concerning the communication of information about projects with a cross-border impact. 
Logically, the next step in the process could be to extend the directive to cover plans and 
programmes, a move that would be welcomed by environmental managers at all levels, as it would 
enable environmental considerations to be taken into account at the earliest stage of their 
development. -_-—-
The Netherlands is» so fer, the only country to have applied strategic environment a$se$smenfc{$EA) 
on new policy plans that are crucial to the decision making* planning and Implementation process of 
a desired activity, Hans which are covered by an EIA are indicated In national législation, An' 
obligation to include a paragraph in these plans where environmental impacts of new policies are 
assessed,, is now In preparation* The Dutch aïso started a screening process on existing instruments 
to ensure their compatibility with sustainable development The tlK government has issued a 
document jpn "Policy Appraisal and the Environment* to encourage departments to undertake cost 
benefit analysis-type appraisal for policy decision at national level* There is however no indication 
that this type of assessment has been used in any policy decisions. France is currently examining the 
usefulness of SEA. 
Early environmental impact assessment is the key to integrate the environment into other policy 
areas, and a central feature of the move towards .sustainable growth referred to in the Treaty. The 
Commission itself adopted a number of mechanisms in June 1993 aimed at ensuring that the 
environment was more closely integrated into other policy areas by examining all measures for their 
environmental impact (see also the next Chapter). 
41 
Development of Physical Indicators and redefinition of national accounting concepts 
In preparation for the November 1993 Conference "Towards a European Model of Sustainable 
Development" and for the White Paper, the Commission explored policy options to help overcome 
conflicts between environment, employment and competitiveness and the tools needed to achieve 
this. 
There is an recognised need to produce a "Green GDP". After an evaluation of existing approaches, 
it was acknowledged that for reasons of methodological problems, at least in the short run, a single 
"Green GDP" instrument would not be feasible to describe environmental benefits and the economics 
and social costs of sustainable development. It is however felt that a more feasible (but not optimal) 
way forward would be a dual approach, based on the development of a system of environmental 
indicators and environmental pressure indices, and of environmental satellite accounts to the 
National Accounting Systems. As a result Eurostat is developing proposals for a Pressure-Index-
Project in close cooperation with Member States, OECD and the EEA. To analyse costs Eurostat and 
national agencies are developing a satellite account approach of which SERIEE would be an element. 
0-3ft =&s^e&e^andfc^^ lafte^veiopmentof e^vjtonme»$i jK#cy ,^ 
pesSbtmmceJndkjatois ébatjKEtable policy makers to quantify,, simplify and conunumc^te progress in ..".. 
Cnvïtofirnéntai i$5ue$ arrôjfc teî&& &i$ to p^icy :roca$ures on environmental themes addressed to :~ 
;,cerÀ stai^et^ou|>s. À îta#pn^,B^ràim>e^sîn.âicâtior %stemj$ uader pœps&&>& -la permaa^ -* 
Development of Cost Benefit Analysis methodologies 
Article 130r(3) of the Union Treaty requires that the potential benefits and costs of action or lack 
of action are considered in the preparation of Community policy on the environment. In the context 
of the Internal Market and SME policies, similar studies are under way. The Commission aims to 
develop, in due course, a common cost-benefit methodology that can be applied to proposals and 
projects with an environmental dimension. At the current stage of science, it is difficult to quantify 
non monetary items, in particular environmental resources. As a result, emphasis is rather on cost-
effectiveness analysis that could provide more practical results than cost-benefit analysis. 
Economic and fiscal instruments 
Charges and levies 
In several countries, charges and levies have been introduced: on deliveries of waste to landfill 
(Denmark and the Netherlands), on domestic fuel (UK), on extraction of ground and surface water 
(Denmark and the Netherlands), on effluents to water (France, Germany, the Netherlands). 
In the Netherlands, product charges on fertilizers and pesticides have been introduced. In France, 
a special charge has been introduced on atmospheric pollution, the revenue of which is redistributed 
in the form of financial aid for equipment and operation to develop industrial technology in the field 
of air pollution. 
42 
Success of Unleaded petrol 
Thanks to a differentiation in excises and in line with EC legislation on the availability of unleaded 
petrol and on standards on vehicle emissions, the consumption of unleaded petrol is, according to 
Eurostat, for the first time larger than that of the leaded version. Since its introduction in 1986, the 
market share rose from 1% in 1986, 40.7% in 1991 to 53,3% in 1993. Its highest share is in 
Germany with 88.7%, followed by Denmark 75.6%, the Netherlands 75.1%. Portugal has the lowest 
consumption 20.9% of unleaded petrol. 
Energy/co2 tax 
The Commission has put a lot of emphasis on the importance of the carbon/energy tax in the overall 
package of measures aimed at stabilizing co2 emissions in the EC in the year 2000 at 1990 levels (see 
Chapter on Energy). The White Paper highlights the significance of the tax proposal by linking the 
contributions it can make, not only to the quality of the environment, but also to lowering indirect 
labour costs, offering the possibility of a double dividend through environmental improvements 
coupled with employment creation. 
If the revenues of the tax, estimated to be around 1% of GNP were used to lower existing taxes and 
charges such as employers social security contributions for the low-skilled, this could have 
considerable effect on the creation of employment. 
In May 1992* Denmark introduced acarbon tax on energy (fuetoils, gas except natural gas» coal and 
electricity) which Corresponds to 100 BKK per ton of ÛD^ «mîtted. For already chargeable products, 
the duty k not mtenfad to raise prices as the basic excise duty was lowered simultaneously, VAT* • 
registered companies are -subject to half the' regular COjj - charge rate. Alternate energy sources ate 
not subject to duties. In July 1992» the Netherlands Introduced a tax on fwk based on energy and 
carbon corresponding to a level of about ÎÔ Dfl per ton. ÛÛt, The tax has not been compensated by 
a lowering of excise duties* 
State aids 
One fundamental principle of Community environmental policy is the "polluter pays" principle. 
When applied, the price mechanism will push companies to convert environmental costs into 
financial terms. In December 1993, the Commission adopted a set of new environmental aid 
guidelines on which basis the Commission will judge state aid for environment protection. The new 
guidelines will cut back on aid for adapting existing plant, but in recognition of the "second best" 
solution that subsidies may represent, allow for a higher rate of aid (up to 30%) for investment that 
goes significantly beyond current environmental requirements. 
Eco-auditing 
Since the adoption of the Regulation on Eco-Management and Audit by Council in 1993, the 
Commission has come up with several initiatives to ensure the smooth entry into force and 
functioning of the scheme. For example, CEN has been given a mandate to establish standards for 
environmental management systems and audit. Work is in progress to establish guidance on 
verification procedures and for the accreditation of verifiers. 
43 
The European organization for Testing (EOTC) and certification will also contribute to and may 
provide an appropriate framework for coordinating national bodies in charge of the accreditation of 
verifiers. 
During 1994, the Commission will issue guidelines concerning criteria conditions and procedures 
for the accreditation of verifiers and guidelines on professional codes and codes of practice for 
verifiers. In 1993, 13 financial contributions to SME's were made to pilot exercises on eco-audit as 
part of an ongoing pilot exercise in which nearly 450 projects have been presented to the 
Commission. 
In the Netherlands a requirement has been mtroduced tn Government Departments for an 
"euvironmeuiai care system** (good Jiousekeeping)« Firms are encouraged fmauciafly to introduce 
Eco-audit In the UK and In Franeey several firms as well as focal authorities ftave^eoadueted 
environmental audits on a voluntary basis- - * 
Eco-label 
In 1992 a Community eco-label award scheme was agreed for products that do not seriously damage 
the environment during their entire life cycle from the raw material to waste elimination stages. In 
principle, the scheme is open to all products, including those imported into the Community. The 
Regulation provides for a consultation process for establishing criteria. It consists, inter alia, of 
national Eco-labelling boards, a Brussels based Consultative Forum involving industry, commerce, 
consumer organisations and environmental organisations and a Regulatory Committee of 
representatives from Member States. This process allows the competent bodies at national level to 
examine products, and leads to the establishment and application of appropriate ecological criteria. 
These criteria are prepared at technical level by a leading competent national body and then decided 
on by the Regulatory Committee. 
During 1993 eco-labels have been awarded to dishwashers and laundry washers. In 1994 decisions 
are expected on toilet paper, kitchen rolls and soil improvers. Further work is ongoing on more than 
20 other types of products. 
Liability 
The Fifth Programme identifies liability as an essential tool of last resort. In 1993 the Commission 
published a Green Paper which looks at the issues surrounding repairing damage to the Environment. 
The Paper considers a number of issues relating to the various types of liability and their limits, the 
definition of environmental damage, the options of repairing the damage and the appropriate 
financial solutions (cleanup costs to be borne by polluters, insurers or compensation funds). It is 
based on the polluter pays principle and examines how to implement this principle in a more 
concrete form. 
The Commission received many comments (more than 2000 pages) from interested parties, 
institutions and Member States and two public hearings were organized by the Economic and Social 
Committee and by the Commission jointly with the European Parliament. These comments and the 
outcome of the hearings are being analyzed to allow the Commission to decide its future action in 
this area. 
44 
Public Information and Education 
The Fifth Programme hinges much of the success of the drive towards sustainability on the 
decisions, actions and influence of the general public. The public today, though aware of the 
importance of the environment, is considerably lacking in essential information. The Commission's 
actions have focused on the following areas: 
Information 
The Commission is due to consider a proposal to improve public access to information by extending 
the Directive on Freedom of Access to Information on the Environment (90/313/EEC) to cover the 
EC institutions. The value of this Directive lies not only in making available environment-related 
information but also in demonstrating the transparency of EC decision-making processes. Member 
States were expected to fully transpose this Directive by 1 January 1993. The Commission 
contributes to environmental information and communication through a variety of brochures and 
campaigns, and through the co-financing of environment related projects. In 1993, 80 such projects 
were co-financed to the value of 5.5 million ECU. 
A wide variety of information booklets on the environment ranging from biodiversity to wetland 
conservation were published together with a brochure on the impact of EC policies - including the 
environment - on all European regions. Over 50,000 copies of the Fifth Environment Programme 
were distributed. Two information campaigns continue to attract widespread attention: the Better 
Environment Awards for Industry, which in 1994 selected 15 businesses for awards from hundreds 
of applications, and the Blue Flag Campaign. In 1994, 1449 beaches were awarded the Blue Flag, 
proving their compliance with the bathing water Directive. 
The Irish Environment Ministry has set up an Environment Information Service (Enfb) to provide 
convenient public access to wide-ranging and reliable mfbrmatfon on the environment One of Bnfo*s 
objectives is "to promote the concept of individual ^sensibility for protection of the environment/* s 
1,000 visitors come «very week and can use a variety of facilities, iree-of-charge, including video-
lending library, a database, envlrûtittient computer games, and on-line access to public libraries 
throughout the country. The Ministry eài& a Bulletin on w&at is going on in the environment that is 
widely distributed* In the Nemerland^.televislon advertisements feature celebrities who describe why 
they are concerned about the environment and sustainable development 
Education 
Conclusions of the Ministers of Education in 1992 called for the further pursuit and intensification 
of the lines of actions set out in the 1988 Council resolution on environmental education. It also 
requested that special attention be given to the intensification of initial and in-service training of 
teachers in this area, and that an implementation report on the activities of the 1988 resolution be 
prepared by the end of 1994. 
Other actions at EC level include managing 21 projects and pilot projects for teachers' training 
amounting to 1 million ECU (1994), preparing the European Summer University on Environment 
Education (with the Commission as co-sponsor), and the publication of an EC Guide on university 
environment courses. 
45 
In the UK, the "Green £rigadett Programme was launched in 1993 to encourage young people to put 
their concerns for the environment into practice. Hine projects» sharing between them £ 100,000, 
have been Selected from a national competition. They Include a scheme in Birmingham to produce 
an educational pack on recycling for schools and youth groups across the country and a project in 
Sussex to turn a disused signal box into an environmental resource centre for children. 
Professional education and training 
The European Commission is increasingly integrating the environment into ESF measures and its 
various professional education and training programmes to meet present and future demand in 
environment-related skills. This is true of the COMETT, ERASMUS, PETRA, EUROTECNET, FORCE and 
TEMPUS programmes. 
For example, the EUROTECNET (European Technical Network) programme's network now includes 
projects whose aim is to integrate the environment and technologies in one particular sector of the 
economy. As a result, experimental training projects exist in areas of new technologies of waste 
disposal, control techniques for pest and disease, environment impact assessment, etc. 
ÎTL May 1993 the'French Environment Minister announced that, instead of being conscripted to do 
military service, young French men would be permitted to do community service as "environmental 
volunteers". In January 1994, the French Prime Minister Edouard Balladur announced a series of 
measures to stimulate employment and public spending* including *green jobs*" The government will - -I 
encourage the creation of 35aÔÔ0 jobs for the environment by me end of 1995- 1ÔÔ million^, hay© 
been set aside for 1994 to help initial investment and training* DIKEN - the Regional Directorates for 
the Environment ~ will administer the fund. In Portugal, the Training Institute has recently begun 
Integrating environmental issues into all its training programmes* 
Financial support mechanisms 
LIFE 
After two years of experience, LIFE - which is a unique environmental financial instrument covering 
the whole territory of the Community - has identified three problems: 
disequilibrium between budgetary resources and funding requests; 
disproportionate administrative burden compared to expected results; 
conflicts between the two managing committees on the share of budgetary resources. 
A report on the implementation of the instrument will be presented to the Council before the end 
of 1994. This report will be accompanied by a proposal to modify the LIFE regulation to clarify its 
scope and improve the procedures relating to the selection of priorities, the collection of projects as 
well as the distribution of results. 
46 
The Structural Policies 
Revision of policy 
The revision of the structural policies and Funds in 1992 provided an opportunity to introduce a 
series of key amendments to the Structural Funds Regulations which were agreed in 1993 
(Regulations 2081/93/EEC and 2082/93). These changes and key amendments to the Structural Funds 
programming process address the integration of environment within the Structural Funds in a more 
systematic and pragmatic way taking into account operational as well as subsidiarity issues. Apart 
from this, an assessment of the environmental impact is required for each measure financed from 
the EAGGF, the ERDF and the ESF in Objectives 1,2 and 5b, to respect the objectives of Community 
environmental legislation, and to associate national and local environmental authorities. 
These changes should also lead to the more effective integration of environmental considerations, 
from the definition and agreement of economic development strategies within the plans submitted 
by Member States through to implementation, monitoring and evaluation. Finally, they highlight the 
importance of taking a strategic perspective with respect to economic growth and the environment, 
reflecting the importance of environment for a sustainable economy. 
Technical assistance 
To help the Member States in complying with requirements outlined for their plans, a guidance note 
on the preparation of an "environmental profile" was prepared by the Commission and sent to the 
Member States. To complement the development of environmental infrastructure (i.e. the 
"hardware"), it is considered critical that technical assistance continues to be made available to 
authorities that are implementing the projects and programmes. 
This assistance can help select good projects, covering best strategy, best technical measures, and 
good practice with respect to organization and operations, including staffing and training (i.e. all 
"software" matters related to hardware). The development of knowledge and good practice related 
to environmental projects is being further encouraged by the Commission through exchange of 
experience networks and actions. 
Environmental indicators 
Evaluation of the "environment profile" element of regional development plans has been improved 
as a result of a "quantification exercise." Carried out by the Commission and Member States, it has 
generated a set of indicators designed to measure the state and performance of environmental 
infrastructures: for example of connections to sewage systems, waste water treatment rates, solid 
waste treatment rates and drinking water quality. These indicators are being used both to describe 
the environmental situation in Member States, and to measure the environmental impact of the 
Community Support Frameworks (CSFs), that is, anticipated progress within the Structural Fund 
programming period. 
47 
Quality of new plans 
Since October 1993, the Commission and the Member States have begun a new round of Structural 
Funds programming for the period 1994-1999. From an environmental and sustainable development 
perspective, there has been a significant improvement in the quality of the plans received due in 
large part to the regulatory changes but also to a growing awareness that integration makes 
economic sense. 
Cohesion Fund 
As far as the Cohesion Fund is concerned, the integration of the environmental dimension in the 
transport infrastructures sector, is principally at the project level through existing environmental 
impact assessment procedures under Council Directive 85/337/EEC. 
The Cohesion Fund Regulation (Regulation 1164/94) of 16 May 1994 refers to the Fifth Programme, 
but only for the environment projects and to the fact that the transport infrastructure projects should 
include their environmental costs and should be compatible with Community Environmental Policy. 
This further strengthens both the degree of integration of environment within project definition and 
the need for projects to have a clear context. At Member State level, such an approach is already 
beginning to evolve: 
Spain h currently setting up a national envirCnmçntàl Strategy to target priorities to be financed 
.... through the/various sources of funding, mcluding both the Cohesion and Structural Funds and to 
- provide both a good coordinating framework between the financial instrument $$ welt a$ a uséftii 
support to decMo&tnakaag:/ _ « - > -, » , 
*** 
X. STRUCTURES FOR SHARED RESPONSIBILITY 
At Community level 
Dialogue Groups 
The Fifth Programme proposed a number of reforms to ensure that the policy, strategy and measures 
set out in the Programme could be implemented and enforced at all levels of society, by improved 
consultation arrangements, better practical follow-up to legislative measures and stricter compliance 
checking and enforcement. 
48 
In line with this, three dialogue groups have been established to take this process forward: 
The Commission's General Consultative Forum on the Environment comprising 32 eminent 
personalities has already held three meetings in 1994. A further three meetings are planned for 
1995. These first three meetings have provided the Commission with an opportunity to consult 
the Forum on the environmental aspects of the White Paper on Growth, Competitiveness and 
Employment. 
Regular meetings of an Environment Policy Review Group (EPRG) have been instituted, 
comprising Environment Directors General of the Member States and the Commission, and 
meetings have also been held with Environment Directors General from EEA countries. 
Directors General have focused their discussions on the target sectors of the Fifth Programme 
and EPRG meetings have played an important role in improving dialogue between the 
Commission and the Member States on strategic issues affecting the environment and 
sustainable'development. ' 
In December 1993, the Chester Network of Enforcement Authorities was transformed into an 
informal Network, foreseen in the Fifth Programme, for the Implementation and Enforcement 
of Environmental Law. This network is aimed at the exchange of information and experience 
on practical issues arising from the implementation and enforcement of environmental 
legislation. 
Integration of policies 
The coming into force of the Treaty on European Union (Article 13 Or) has significantly reinforced 
the principle set out in the Fifth Programme of the need to integrate environmental considerations 
into all relevant policies. 
To improve this process in its own work, in June 1993 the Commission approved a series of internal 
measures intended to ensure the integration of environmental considerations in its proposals on other 
areas of Community policy-making. 
Environment integration correspondents have been appointed in all Directorates General at 
senior level. DG XI ensures that these correspondents are regularly informed of developments 
in the environment and provides support to mem in their tasks of ensuring the integration into 
policy-making in their services. The Commission's Manual of Procedures has been updated 
in the light of the new requirements, and training actions will be organised (eg. on impact 
assessment procedures). 
The Commission's 1994 Legislative Programme identified proposals likely to have a 
significant impact on the environment with a "green star" system. The Directorates General 
leading work on these items are responsible for ensuring that an environmental impact analysis 
is carried out. 
Directorates General must prepare an annual evaluation of their environmental performance, 
which will be included in the Commission's Annual Report. 
49 
At Member State level 
Although some Member States drew up national Green Plans or Sustainable Development Strategies 
before 1992, the UNCED Conference in 1992 and the publication of the Fifth Programme provided 
the impetus for most to prepare or develop new national strategies. The Netherlands, Luxembourg, 
the UK, Italy, Ireland and Denmark already have such plans, and Spain, France and Portugal are 
currently drawing up their national strategies. In Belgium, under the new federal system, Brussels, 
Flanders and Wallonia have each developed sustainable development plans. Flanders has its MiNa 
plan on Environment and Nature. Public consultation is currently under way on the Walloon plan. 
Consultative bodies 
Since 1992, in line with the commitments made at Rio, the majority of Member States have either 
set up some form of national consultative forum on the environment or redefined the role and 
objectives of existing bodies with the intention of providing a forum for dialogue and consultation 
between the actors and sectors involved in sustainable development. These include Belgium, 
Denmark, France, Germany, Italy, the Netherlands and the UK. In Belgium, the Walloon region also 
has its own regional council. Spain has established an Environmental Policy Advisory Council. 
Formal mechanisms for integration 
Mechanisms for ensuring integration of environmental considerations into other policy areas exist 
in some form in all Member States and have been strengthened and expanded since 1992. In some 
Member States, standing inter ministerial committees meet regularly to discuss policy issues that 
have environmental implications (eg. Belgium, Denmark, France, Greece, the Netherlands, the 
United Kingdom) and one is due to be set up in Italy shortly. In Spain representatives from the 
Environment ministry attend "sectoral conferences" comprising representatives of the ministries 
concerned and^ autonomous regions and an environmental policy coordination commission is 
planned. In other Member States, inter ministerial committees are set up to identify joint approaches 
on issues of mutual interest (eg. environment/health and environment/agriculture in Germany,at the 
federal and, in some cases at the Lander level, and in most countries climate change) . 
Environmental units in other ministries 
In a few Member States, environment units have been set up in other ministries such as energy, 
transport and agriculture (the United Kingdom, Ireland, Portugal, Greece, the Netherlands and 
Germany, at the federal and, in some case the Lander level). Their role is to ensure environmental 
considerations are integrated into the Ministry's policy area and to liaise with officials in the 
environment ministry. In certain cases, inter ministerial units have been set up to work on specific 
issues (eg. on manure in the Netherlands). 
50 
Although environment units in energy ministries are generally successful, their effectiveness in many 
other sectors is limited and they have not succeeded in making an impact on policy and decision­
making. 
At regional/local level 
The Maastricht Treaty reinforced the Fifth Programme's emphasis on the importance of the regional 
level by declaring that "Community policy on the environment shall aim at a high level of 
protection taking into account the diversity of situations in the various regions of the Community." 
The Treaty also set up a Committee of the Regions that decided in April 1994 to establish a 
committee on land use planning, environment and energy matters. 
A major Conference of Environment Ministers and Political Leaders of the Regions, co-funded by 
the Commission and held in December 1993 underlined the regions' intention to implement 
sustainable development policies and to integrate environmental considerations into other policy 
areas and called for annual meetings between regional environmental authorities and the 
Commission. 
As proposed at the Rio Conference, there have been strong initiatives from local and regional 
authorities on sustainable development and integration in a number of countries since 1992. Some 
regions have drawn up their own sustainable development plans. For example, the Madrid 
Community has published the "Madrid 21" plan that closely follows the format of the Fifth 
Programme. In the Walloon area of Belgium public consultation began in May 1994 on the region's 
own sustainable development plan. In the United Kingdom, a new organisation has been set up to 
help local authorities draw up their own Agenda 21 and a number have already done so. 
Integration of environmental considerations into other policy areas may take place at both the 
regional and national levels. In Spain, for example, national and regional authorities meet 
periodically at sectoral conferences and in the United Kingdom Environment Ministers and the 
leaders of local authority associations meet in the Central and Local Government Environment 
Forum. In Germany, meetings are held between the Federal Government and Lander Governments 
at ministerial and senior official level and there are also several working groups and committees that 
deal with the adoption and implementation of legislation relating to air and water quality, chemicals 
and waste management. Discussion also takes place at the regional/Community level with regular 
information meetings between the Brussels offices of Member State regions and the Commission, 
involving not just the Environment Service, but also the services responsible for structural funds, 
transport etc. 
Since 1992, as an extension of the global policy on municipal and intet^^mmanaf environment 
plans* &e French Environment Ministry f*as encouiaged local a»&orttIes to dtaw «p *Bnv%onmeut 
Charters" In relation to action programmes resulting from à diagnostic-audit of the environmental 
sfarettom H*e charters are based on an agreed definition of tfes townk strategic options fihd cleady^ 
defined, ambitious objectives which are financed on a contractual basis Jrom a number of sources. 
Untfet &e new £utc& Environmental Management Ae^ provinces ans obliged to draw up long-term 
environment plans; municipalities aie under no obligation but will receive additional central 
government funding If they 4oso> * ' , '-
51 
Relations with NGOs 
The Commission actively supports environment-orientated NGOs by providing financial aid to help 
with running costs and to assist with specific information and awareness campaigns on 
environmental issues. Financial support is mainly granted to European-wide NGOs that focus on the 
priorities of the Fifth Programme. In 1992-3, for example, the European Environment Bureau (EEB) 
organized a round table on the Fifth Programme in each Member State with financial support from 
the Commission to reflect on how to implement the principle of shared responsibility. 
Contacts between NGOs and the Commission take place on a regular basis and at various levels. 
High level meetings were held in both 1992 and 1993 between the Commission, represented by its 
President and the Commissioner for the Environment, and the main European environmental NGOs 
to discuss a wide range of environmental issues. Commission officials from different Directorates 
General meet annually with the EEB's General Assembly. Since 1992, regular information meetings 
have been held between the Commission and representatives of 8 major NGOs to brief them on the 
Commission's environmental policy. In addition, thematic meetings (eg. on the Rio Conference, trade 
and environment, the structural funds and environment) have been held in which other Commission 
Directorates General have taken part. 
NGOs also played a key role in the Seminar on sustainable development, organised jointly by the 
European Commission and the Belgian Presidency in November 1993 and are involved with the 
European Partners for the Environment initiative (see Chapter on Manufacturing Industry). 
The Commission is assisting Friends of the Earth with its Sustainable Europe project, whose aim 
is to calculate the environmental space of the Community and to address the question of how to 
reduce over-consumption of resources. 
XL APPLICATION OF COMMUNITY ENVIRONMENTAL LEGISLATION 
The Fifth Programme underlines the importance of implementing environmental legislation more 
effectively. Each year, the Commission publishes an annual report on the monitoring of the 
application of Community law in Member States. The reports covering 1992 and 1993 both note that 
enacting national measures to implement directives has taken too long, mainly due to problems of 
administrative coordination, and that Member States often transpose and apply directives incorrectly. 
As far as transposition is concerned, the Commission and individual Member States (often involving 
regional and local authorities) hold periodic "package meetings" to examine progress made in 
transposing Community legislation and to help Member States with any difficulties that arise (in 
1992, for example, package meetings were held with Belgium, Denmark, France, Luxembourg and 
Spain, and in 1993 with Belgium, Denmark, France, Italy, Ireland, Luxembourg, the Netherlands, 
Portugal and the United Kingdom). 
Incorrect application of environmental law is most commonly detected through a high number of 
complaints from Community citizens and through questions put by Members of the European 
Parliament. Although the number of complaints registered in 1993 (306) was less than in 1992 
(482), this is because the Commission is now merging similar cases. 
52 
The greatest number of infringements continue to relate to the environmental impact assessment 
directive (85/337/EEC) which shows that it is still not performing as an effective environmental 
safeguard nor attaining its objective of securing a proper role for the general public in planning 
decisions that directly affect their lives. As the general public will have greater access to information 
on the environment with the entry into force of Directive 90/313/EEC, it is likely that public 
awareness of the damage being done to the environment will rise and that there may be a farther 
increase in the frequency ofcomplaints filed with the Commission. 
Furthermore the entry into force in 1993 of Directive 91/692/EEC on the harmonisation of national 
reports on the application of certain legislation gives the Community access to comparable data, 
enabling the Commission to proceed from information supplied from official sources instead of 
relying on steadily raising numbers of complaints from individuals and on questions from MEPs. 
The decision taken in 1993 concerning the setting up of the European Environment Agency is also 
significant since Article 20 of Regulation 1210/90/EEC on the establishment of the Agency and the 
European Environment Information and Observation Network provides that two years after the 
Regulation's entry into force the possibility of involving the Agency in the monitoring of 
Community legislation may be examined. 
The first meeting of the Network for the Implementation and Enforcement of Environmental Law, 
set up in the framework of the Fifth Programme, was held at Steenokerzeel, Belgium, in December 
1993. Two further meetings were organised in Athens and Munich in 1994. This informal Network 
follows in the footsteps of the "Chester" working groups and will focus on the practical 
implementation and enforcement of environmental law, to provide a forum for policy 
makers/legislators and environmental inspectors/enforcement officers to exchange ideas both jointly 
and separately and to encourage the development of enforcement structures. It will cover existing 
legislation, but will also advise on the best way forward for new Community legislation and its 
implementation, application and enforcement. 
The Network will also help to develop greater Community consistency in the implementation of 
Community legislation through strategic discussion on enforcement problems. It is hoped that the 
Network will be an important element in confidence-building and sharing responsibility as foreseen 
in the Fifth Programme and that the exchange of experience and diffusion of information will allow 
best practices to be identified. 
53 
XH. FINAL CONCLUSION 
The overall message of this Report is one of cautious optimism. Seeds have been planted. Now they 
need water and warmth to blossom. 
The combination of the Fifth Programme and the Rio Earth Summit underpinned by the legal and 
procedural changes incorporated in the Treaty on European Union has marked a turning point in the 
way sustainable development is being approached both in the Commission and in Member States. 
A major rethinking process on the sides of both the Commission and Member States has had to be 
initiated on the new rationale of environment policy. 
The Report shows that some progress has been achieved and considerable efforts are being made 
in several areas. Despite the recession that has been at its most severe during the period under 
review, sustainable development remains an issue on the political agenda and is increasingly seen 
as an important part of the economic debate. However, there still remains a failure to get to the real 
heart of some of the key issues. 
For the present, despite the Fifth Programme, Agenda 21 and other initiatives at Member State level, 
sustainable development continues to be the business of those who deal with the environment. 
In general, there are few criticisms of the approach set out in the Fifth Programme. There is now 
a need to look at how to move towards a new model of development. To achieve this, the following, 
inter alia, are necessary: 
important breakthroughs in the development of viable economic and fiscal instruments, at EC 
and Member State level, to ensure the integration of environmental costs into the prices of 
goods and services; 
the reorientation of technology from the current labour-saving fixation to an emphasis on 
resource saving in general; 
evaluation of the implications of current technological developments on models of physical 
planning in particular the structure of urban regions; 
the Commission and Member States need to recommit themselves, at the highest political 
levels, to move in the right direction, recognising that a considerable part of the Fifth 
Programme falls to be carried out at levels other than the Community level; 
the 1995 review of the Programme will need to decide whether to make the approach adopted 
more focused, to update and strengthen quantitative targets, to make priorities for action 
clearer, and whether there are additional areas where action is needed; 
means of measuring progress towards sustainable development at Community and at Member 
State level. 
54 
ANNEX I 
LEGISLATION IN THE ENVIRONMENT SECTOR 
1992 
Legislation adopted by the Council 
- OJ L 99, 11.4.1992 - Council Regulation (EEC)N°880/92 on a Community eco-label award 
scheme. 
- OJ L 206, 21.5.1992 - Council Directive 92/43/EEC on the conservation of natural and semi-
natural habitats and of wild fauna and flora. 
- OJ L 154, 5.6.1992 - Directive 92/32/EEC amending for the seventh time Directive 67/548/EEC 
(classification, packaging and labelling of dangerous substances). 
- OJ L 206, 22.7.1992 - Council Regulation N°1973/92 establishing a financial instrument for the 
environment (LIFE). 
- OJ L 251, 29.8.1992 - Council Regulation (EEC) N°2455/92 concerning the export and import 
of certain dangerous chemicals. 
- OJ L 297, 13.10.1992 - Council Directive N° 92/72/EEC on air pollution by ozone. 
- OJL 371, 19.12.1992 - Council Directive N° 92/97/EEC on the approximation of the law of the 
Member States relating to the permissible sound level and the exhaust system of motor vehicles. 
- OJ L 405, 31.12.1992 - Council Regulation (EEC) N°3952/92 amending Regulation (EEC) 
N°594/91 in order to speed up the phasing-out of substances that deplete the ozone layer. 
- OJ L 409, 31.12.1992 - Council Directive 92/112/EEC on procedures for harmonizing the 
programmes for the reduction and eventual elimination of pollution caused by waste from the 
titanium dioxide industry. 
Resolutions adopted by the Council 
- OJ C 158, 25.6.1992 - Council resolution on the renewal of the Community plan of action in the 
field of radioactive waste. 
- OJ C 72, 8.7.1992 - Council resolution on the technological problems of nuclear safety. 
Legislation adopted by the Commission 
- OJ L 201, 20.7.1992 - Commission Regulation (EEC) N° 1970/92 amending Council Regulation 
(EEC) N° 3626/82 on the implementation in the Community of the Convention on International 
Trade in Endangered Species of Wild Fauna and Flora (Cites). 
55 
Legislative proposals made by the Commission 
- COM(92)9, OJ C 130, 21.5.1992 - Proposal for a Directive on the incineration of hazardous 
waste. 
- COM(92)226, OJ C 196, 3.8.1992 - Proposal for a Council Directive introducing a tax on carbon-
dioxide emissions and energy. 
- Bull.EC 7/8-1992, 6.7.1992 - Proposal for a Directive laying down the basic standards for the 
protection of the health of workers and the general public against the danger arising from 
ionizing radiation. 
- COM(92)277, OJ C 227, 3.9.1992 - Proposal for a Council Directive on the control of volatile 
organic compound (VOC) emissions resulting from the storage of petrol and its distribution from 
terminals to service stations. 
- COM(92)278, OJ C 263, 12.10.1992 - Proposal for a Council Directive on packaging and 
packaging waste. 
- COM(92)398, OJ C 260, 9.10.1992 - Proposal for a Council Directive amending Annex II to 
Directive 79/409/EEC on the conservation of wild birds. 
1993 
Legislation adopted by the Council 
- OJ L 30, 6.2.1993 - Regulation (EEC) N° 259/93 on the supervision and control of shipment of 
waste within, into and out of the Community. 
- OJ L 74, 27.3.1993 - Directive 93/12/EEC on the sulphur content of gasoil. 
- OJ L 84, 5.4.1993 - Council Regulation (EEC) N° 793/93 on the evaluation and control of the 
environmental risks of existing substances. 
- OJ L 148,_ 19.6.1993 - Regulation (Euratom) N" 1493/93 on the shipments of radioactive 
substances between Member States. 
- OJ L 167, 9.7.1993 - Decision 93/389/EEC on a monitoring mechanism for C02 and other 
greenhouse gas emissions 
- OJ L 168, 10.7.1993 - Council Regulation (EEC) N" 1836/93 allowing voluntary participation 
by companies in the industrial sector in a Community eco-management and audit scheme. 
- OJ L 186, 28.7.1993 - Directive 93/59/EEC amending Directive 70/220/EEC on the air pollution 
by emissions from motor vehicles. 
- OJ L 329, 30.12.1993 - Commission Directive 93/116/EC adapting to technical progress Council 
Directive 80/1268/EEC relating to the fuel consumption of motor vehicles. 
56 
Legislation adopted by the Commission 
- OJ L 227, 8.9.1993 - Commission Directive 93/67/EEC on the General Principles for the Risk 
Assessment of Risks to Man and the Environment of Substances notified in accordance with 
Council Directive 67/548/EEC. 
- OJ L 110, 4.5.1993/ OJ L 258, 16.10.1993/ OJ L 13, 15/1/1994 - Commission Directives 
93/21/EEC, 93/72/EEC and 93/101/EEC Adapting to Technical Progress for the 18th, 19th and 
20th time Council Directive 67/548/EEC 
- OJL 279, 12.11.1993 - Commission Decision 93/584/EEC of 22 October 1993 establishing the 
criteria for Simplified Procedures concerning the deliberate release into the environment of 
genetically modified plants pursuant to Article 6(5) of Council Directive 90/220/EEC. 
Legislative proposals made bv the Commission 
- COM(92)563, OJ C 17, 22.1.1993 - Proposal for a Council Directive amending Directive 
88/609/EEC on the limitation of emissions of certain pollutants into the air from large 
combustion plants. 
- COM(93)53, OJ C 78, 19.3.1993 - Proposal for a Council Regulation on operations to promote 
tropical forests. 
- COM(93)120, OJ C 112, 22.4.1993 - Proposal for a Regulation amending Regulation 
(EEC)N*2455/92 on the import of certain dangerous chemicals. 
- COM(93)154, OJ C 157, 9.6.1993 - Proposal for a Directive amending Directive 86/662/EEC on 
the limitation of noise emitted by earthmoving machinery. 
- COM(93)202, OJ C 232, 28.8.1993 - Proposal for a Council Regulation on substances that 
deplete the ozone layer. 
- COM(93)351, OJ C 239, 3.9.1993 - proposal for a Council Directive concerning the placing of 
biocidal (non-agricultural pesticide) products on the market. 
- COM(93)4_23, Bull.EC 9-1993, 14.9.1993 - Proposal for a directive on Integrated Pollution 
Prevention and Control. 
- COM(93)425, OJ C 271, 7.10.1993 - Proposal for a Council Directive amending Directive 
91/689/EEC on hazardous waste. * 
- COM(93)638, Bull.EC 12-1993, 21.12.1993 - Proposal for a Council Directive relating to the 
classification, packaging and labelling of dangerous substances. 
Other proposals 
- COM(93)47, Bull.EC 5-1993, 17.3.1993 - Green paper on remedying environmental damage 
57 
1994 
Legislation adopted bv the Council 
- OJ L 100, 19.4.1994 - European Parliament and Council Directive 94/12/EEC amending Directive 
70/220/EEC on the approximation of the laws of the Member States relating to measures to be 
taken against air pollution by emissions from motor vehicles. 
Resolutions adopted by the Council 
- Bull.EU 3-1994, 25.3.1994 - Council Resolution on the integrated management of coastal zones. 
Legislation adopted by the Commission 
- JO L 103, 22.4.1994 - Commission Directive 94/15/EEC Adapting to Technical Progress for the 
1st time Council Directive 90/220/EEC on the Deliberate Release into the Environment of 
Genetically Modified Organisms. 
- JO L 105, 26.4.1994 - Commission Decision 94/211/EC Amending Council Decision 91/596/EEC 
Concerning the Summary Notification Information Format referred to in Article 9 of Council 
Directive 90/220/EEC. 
- JO L 5, 7.1.1994 - Commission Decision 94/3/EC of 20 December 1993 establishing a list of 
wastes pursuant to Article 1(a) of Council Directive 75/442/EEC on waste 
Legislative proposals made by the Commission 
- COM(94)4, Bull.EU 1/2-1994, 26.1.1994 - Proposal for a Council on Directive amending 
Directive 82/501/EEC on the control of major-accident hazards involving dangerous substances. 
- COM(94)36, Bull.EU 1/2-1994, 16.2.1994 - Proposal for a Council Directive on bathing water 
quality amending Council Directive 76/160/EEC. 
- COM(94)39, Bull.EU 1-2/1994, 23.2.1994 - Proposal for a Council Directive amending Directive 
79/409 on the conservation of wild birds. 
- COM(93)575, Bull.3-1994, 16.3.1994 - Proposal for a Council Directive amending Directive 
85/337/EEC on the assessment of the effects of certain public and private projects on the 
environment. 
- COM(93)680 final, OJ C222 10.8.1994 - Proposal for a Council Directive on the ecological 
quality of water. 
- COM(94)109 final, OJ C216 6.8.1994 - Proposal for a Directive on the ambient air quality 
assessment and management. 
ESNQ254-147i 
COM(94) 453 final 
DOCUMENTS 
EN 14 
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ISBN 92-77-81407-1 
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