COMMISSION OFTHE EUROPEAN COMMUNITIES
COM (92)23 final -VOL .I
! Brussels ,27March 1992
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4
PROPOSAL
1
-s for aH
•5RESOLUTION OFTHE COUNCIL OFTHE EUROPEAN COMMUNITIES
onaCommunity programme ofpolicy and
action inrelation tothe environment and sustainable
developmentH
ч
(presented bytheCommission )
VOLUME I
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PROPOSAI .
for a
RESOLUTION OFTHE COUNCIL OFTHE EUROPEAN COMMUNITIES
onaCommunity programme ofpolicyand
action inrelation tothe environment and sustainable
deve Iopment
THE COUNCIL OFTHE EUROPEAN COMMUNITIES ,
Having regard tothe Treaty establishing the European
Coa Iand Stee ICommun ity ,
Having regard tothe Treaty establishing the European
Econom icCommun ity ,
Having regard tothe Treaty establishing the European
Atom icCommun ity ,
Having regard tothe draft from the Commission ,
Hav ing 'regard
Par Iiament ,to the opinion of the European
Having regard tothe opinion ofthe Economic and Social
Comm ittee ,
Whereas the Treaty estab Iish ingthe European Economic
Community ,as amended by the Single European Act ,
explicitly provides for the development and
implementation ofaCommunity policy onthe environment ,
and lays douun the objectives and principles iuh ichshould
govern such policy ;prov ides and for the deve Iopment

-2
Whereas the Treaty lays down |that action by the
Community relating tothe environment shall have the
following objectives :
topreserve ,protect and improve the quality ofthe
env ironment ,
tocontribute towards protecting human health ,
toensure aprudent and rational utilization of
natural resources ;
Whereas the Treaty on European Union signed at
Maastricht on 7February 1992 has as aprincipal
objective the promotion ofsustainable growth respecting
the environment ,includes among the activities ofthe
Union apolicy inthe sphere ofthe environment ,
specifies that this policy must aim atahigh level of
protection ,that environmental protection requirements
must be integrated into the definition and
implementation ofother Community policies and that
Community policy ontheenvironment must contribute to
promoting measures atinternational level todeal with
regional orworldwide environmental problems .
Whereas the Declaration ofthe Council ofthe European
Communities and of the Representatives of the
Governments ofthe Member States ,meeting within the
Council .of 22 November 1973^) called for the Council ,of 22 November 1973' '*called for the
implementation ofaEuropean Communities programme of
action onthe environment ;whereas the action programme
was extended and supplemented for the period 1977 to
the 1992 by the resolutions of the Counci Iand the
Representatives oftheGovernments oftheMember States ,
meeting within theCouncil ,of17May 1977^), of
7February 19B3 <3)andof19October 19S7<4);17May 1977(2 ),of
(1)OJ N"C112.20.12.1973
(2)OJ N*C139.13.6.1977
(3)OJN*C46.17.2 .1983
(4)OJN'C328 .7.12.1987

3
Whereas the Declaration of the Heads of State and
Government ,meeting inCouncil ,of26June 1990 calls
for afurther action programme for the environment tobe
elaborated onthe basis ofthe principles ofsustainable
development ,preventive and precautionary action ,and
shared responsibility ;
Whereas the said Declaration also acknow Iedges the wider
responsibilities oftheCommunity and itsMember States ,
asone ofthe foremost regional groupings inthe world ,
toplay aleading role inpromoting concerted and
effective action atglobal level ,working with other
industrialised countries ,and assisting developing
countries toovercome their special difficulties ;
Whereas theCommunity’s credibility and effectiveness at
this wider level depends inlarge measure onthe ability
to adopt progressive environmental measures for
implementation andenforcement byitsMember States ;and
whereas ,therefore ,the internal and external dimensions
ofCommunity environment policy are inextricably linked ;
Whereas , in conformity with the principle of
subsidiarity ,many aspects ofthe policy and specific
actions towhich the Programme "Towards Sustainability”
will give rise fall tobecarried out atlevels other
than those involving the powers ,duties and competences
ofthe European Communities .
Whereas the strategy advanced intheProgramme relies on
satisfactory integration of environment and other
relevant policies and onthecomplementarity ofmeasures
and -actions atdifferent levels soasoptimise their
effectiveness ;

4
ACKNOWLEDGES that theProgramme "Towards Sustainability "
presented by the Commission follows closely the
objectives and principles set out inthe Declaration of
the Heads ofState and Government ofthe Community
meeting inCouncil on26June 1S90 and inthB Treaty on
European Union signed atMaastricht on7February 1992 ;
ACKNOWLEDGES that many current forms ofactivity and
development are notenvironmentally sustainable ;
ENDORSES ,accordingly ,theProgramme’s general objective
of progressively orientating human activity and
development towards more sustainable forms ;
AGREES that the achievement ofsustainable development
will require significant changes from current patterns
ofdevelopment ,consumption and behaviour ;
DECLARES that such changes cannot beach ieved without a
sharing of responsibi Iity at global ,Community ,
national ,regional ,local and even personal levels ;
w/thi n the Insofar as environment and development
European Commun 111esare concer ned :
NOTES the Report onthe State ofthe Environment which
the Commission has published inconjunction with the
Programme ;notes the positive impact that previous
action programmes have made oncertain environmental
problems ;notes that the end ofthe time-frame ofthe
current action programme onthe environment coincides
with the completion ofthe Internal MarKet ;

5
CONSIDERS ,however ,that the current measures donot
appear tobesufficient tomeet the increased pressures
onthe environment likely toarise inconsequence of
current and anticipated trends ineconomic and social
activity within the Community and the political and
economic developments inCentral and Eastern Europe and
atwider international level ;
AGREES that amore progressive and better co-ordinated
policy and strategy for the environment and sustainable
development iscalled for ;
ENDORSES the strategy oftackling key sectors inaco¬
ordinated and comprehensive manner and agrees that ,
because oftheir impact and importance throughout the
Community special attention should bedirected towards
the industry ,energy ,transport ,agriculture and tourism
sectors ;
AGREES that involvement of all AGREES that involvement ofall levels ofsociety ina
spirit ofshared responsibility will require adeepening
and broadening ofthe range ofinstruments tocomplement
normative legislation including ,inparticular ,
market-based instruments ,including economic and
fiscal incentives ;
information ,éducation and training ;
financial support mechanisms ;
NOTES the objectives ,targets ,actions and time-frames
ind icated inthe Programme ;and cons iders that they
offer asound basis for moving towards sustainable
development ;

B
NOTES ,that sustainability ofactivity and development
will not be attained within the life-span of this
Programme and ,consequently ,that further ,still more
progressive measures will probably benecessary beyond
theyear 2000 inorder tohand ontheenvironment tothe
next generation inafitstate tomaintain public health
and social and economic welfare atahigh level ;
NOTES ,also ,that while many ofthemeasures and actions
ars set within atime-frame which extends to2000 ,and
even beyond ,itisintended toundertake areview ofthe
Programme before the end of1995 ;
CONSIDERS that inorder to ensure that Community
measures on the environment are more effectively
implemented ,cooperation procedures between the
Commission and the Member States should be furthercoopérât ion .impiemented ,
Comm iss ion
improved .
Insofar as .environment and development at wider
International level are concerned ,
ASSERTS that the Communities will contribute actively
and positively to the successful negotiation and
implementation ofglobal strategies todeal with such
problems and issues asclimate change ,deforestation ,
biodiversity andenergy and toprogrammes ofsustainable
development particularly inthedeveloping countries and
inthe countries ofCentral and Eastern Europe inthe
framework of their co-operation and association
agreements ;
NOTES that many ofthe interna ICommun itymeasures in
the -Programme are designed to reduce wasteful
consumption ofresources and ,thereby ,will contribute
togreater efficiency inresource management atwider
international level ;

7
LOOKS tothe forthcoming United Nations Conference on
Environment and Development toprovide aframework for
the promotion ofpolicies and programmes designed to
improve thequality ofhuman life worldwide through more
equitable distribution ofnatural resources ,alleviation
ofpoverty ,food security and improved health standards
and Iifeexpectancy ;
and ,Inthe llght ofthe foregolng
SUBSCRIBES tothe necessity for aprogramme ofpolicy
and action inrelation tothe environment designed to
achieve asustainable development path ;
APPROVES the general approach and strategy of the
Programme "Towards Sustainability” presented by the
Comm iss ion ;
INVITES the Commission tocome forward with appropriate
proposals togive effect tothe Programme insofar as it
pertains toaction atCommunity level ;
UNDERTAKES todecide onproposals submitted bythe
Commission asexpeditiously aspossible soastorespect
the relevant objectives ,targets and time-f rames .set out
inthe Programme ;
CALLS onall Community Institutions ,Member States ,
enterprise and citizens to accept their relative
responsibilities toprotect the environment for this and
future generations and toplay their full part in
implementing this Programme .

ISSN0254-1475
COM(92 )23/1final
DOCUMENTS
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Cataloguenumber :CB-CO-92-148-EN-C
ISBN92-77-42765-5
OfficeforOfficialPublications oftheEuropeanCommunities
L-2985Luxembourg

COMMISSION OFTHE EUROPEAN CQMVTUNITIES
COM (92)23 final VOL .II
Brasse Is,27March 1992
TOWARDS
SUSTAINABILITY
AEuropean Community Programme
ofPolicy andAction inrelation to
theEnvironment andSustainable Development
VOLUME II

EXECUTIVE SUMMARY
Introduction protection requirements must beintegrated into
thedefinition and implementation ofother
Community policies (Art.130r.2 ).ThenewTreaty
alsoattaches special value totheprinciple of
subsidiarity (Art.3b),and states thatdecisions
should betaken asclosely aspossible tothe
citizens (Art.A).Furthermore ,theCommunity
policy ontheenvironment isrequi redtocontribute
topromoting measures atinternational level to
dealwith regional orworldwide environmental
problems (Art.130r.l ).Inthislatter context the
Community willendeavour tofindsolutions in
thefieldofdevelopment andenvironment atthe
United Nations Conference onEnvironment and
Development (UNCED )inRiodeJaneiro inJune
1992 .1.Over thepast twodecades four Community
action programmes ontheenvironment have
given risetoabout 200 pieces oflegislation
covering pollution oftheatmosphere ,water and
soil,waste management ,safeguards inrelation to
chemicals andbiotechnology ,product standards ,
environmental impact assessments andprotection
ofnature .TheCommunity 's4thAction Programme
ontheEnvironment hasnotbeen completed -it
runsuptotheendof1992-anditsimpact willnot
beknown forsome years tocome .While agreat
deal hasbeen achieved under these programmes
andmeasures ,acombination offactors calls fora
more far-reaching policy and more effective
strategy atthisjuncture : Allhuman activity hasanimpact onthebiophysical
world andis,inturn,affected byit.Thecapacity
tocontrol thisinterrelationship conditions the
continuity ,overtime ,ofdifferent forms ofactivity
and thepotential foreconomic andsocial
development .Within theCommunity ,thelong ¬
term success ofthemore important initiatives
such astheInternal Market and economic and
monetary union will bedependent upon the
sustainability ofthepolicies pursued inthefields
ofindustry ,energy ,transport ,agriculture and
regional development ;buteachofthese policies ,
whether viewed separately orasitinterfaces with
others ,isdependent onthecarrying capacity of
theenvironment3.
(i)anew Report ontheState oftheEnvironment
published inconjunction with thisProgramme
indicates aslow butrelentless deterioration ofthe
general stateoftheenvironment oftheCommunity
notwithstanding themeasures taken overthepast
twodecades ,particularly asrespects theissues
referred toinpara 16below ;theReport also
shows upsignificant deficiencies inthequantity ,
quality andcomparabi lityofdatawhich arecrucial
forenvironment-related policies anddecisions .In
thiscontext itisoftheutmost importance thatthe
European Environment Agency become
operational .
(ii)thepresent approach andexisting measures are
notgeared todealwith theexpected growth in
international competition andtheupward trends
inCommunity activity anddevelopment which
will impose even greater burdens onnatural
resources ,theenvironment and,ultimately ,the
quality oflife;
(iii)global concerns about theclimate change /
deforestation /energy crisis ,theseriousness and
persistence ofproblems ofunderdevelopment
andtheprogressof political andeconomic change
inCentral and Eastern Europe add tothe
responsibility oftheEuropean Community inthe
international field .Theachievement ofthedesired balance between
human activity anddevelopment andprotection
oftheenvironment requires asharing of
responsibilities which isboth equitable andclearly
defined byreference toconsumption ofand
behaviour towards theenvironment andnatural
resources .Thisimplies integration ofenvironment
considerations inthe formulation and
implementation ofeconomic andsectoral policies ,
inthedecisions ofpublic authorities ,intheconduct
anddevelopment ofproduction processes andin
individual behaviour andchoice .Italsoimplies
effective dialogue andconcerted action among
partners who may have differing short-term
priorities ;such dialogue must besupported by
objective andreliable information .4.
2.ThenewTreatyon European Union ,signed byall
Member States on7February 1992hasintroduced
asaprincipal objective thepromotion of
sustainable growth respecting theenvironment
(Art2).Itincludes among theactivities ofthe
Union apolicy inthesphere oftheenvironment
(Art.3(k)),specifies thatthispolicy must aimata
high levelofprotection andthatenvironmentalAsusedinthe Programme ,theword "sustainable "
isintended toreflect apolicy andstrategy for
continued economic and social development
without detriment totheenvironment and the
natural resources onthequalityofwhich continued
human activity andfurther development depend .
The Report oftheWorld Commission on
Environment and Development (Brundtland )5.
B

defined sustainabledevelopment as"development
which meets theneeds ofthepresent without
compromising theability offuture generations to
meet their own needs *.Itentails preserving the
overall balance andvalue ofthenatural capital
stock ,redefinition ofshort ,medium andlong ¬
term cost/benefit evaluation criteria and
instruments toreflect the real socio-economic
effects and values ofconsumption and
conservation ,andtheequitable distribution and
useofresources between nations and regions
over theworld asawhole .Inthelatter context ,the
Brundtland Report pointed outthatthe developed
countries ,withonly26%oftheworld population ,
areresponsible forabout 80%ofworld
consumption ofenergy ,steel andother metals ,
andpaper andabout 40%ofthefood .biodiversity ,etc.-areseriously threatening the
ecological balance ofourplanet asawhole .
9.These issues aretobeaddressed atthehighest
level atthe United Nations Conference on
Environment andDevelopment(UNCED ).Justas
the 1972 UNConference inStockholm created a
new awareness and concern about the
environment atbroad international level ,sotoo
can UNCED bring global political will and
commitment toeffective action into anew
dimension .Apart from theexpected adoption of
framework conventions onclimate change and
biodiversity andofprinciples onconservation
anddevelopment offorests ,UNCED should pave
thewayforward byadopting :
*An“Earth Charter *orDeclaration ofbasic rights
andobligations with respect toenvironment
anddevelopment ;6.Following aresome ofthepractical requirements
forachieving sustainable development :
since thereservoir ofrawmaterials isfinite ,the
flowofsubstances through thevarious stages of
processing ,consumption anduseshould beso
managed astofacilitate orencourage optimum
reuse andrecycling ,thereby avoiding wastage
andpreventing depletion ofthenatural resource
stock ;*Anagenda foraction ,“Agenda 21”,which will
constitute anagreed work programme ofthe
international community fortheperiod beyond
1992andintothe21stcentury .
10 Inthedeclaration ontheenvironment made in
Dublin inJune 1990the European Council stressed
thespecial responsibility oftheCommunity and
itsconstituent Member States inthe wider
international arena when itstated that “the
Community must usemore effectively itsposition
ofmoral ,economic andpolitical authority to
advance international efforts tosolve global
problems andtopromote sustainable development
andrespect (ortheglobal commons ".Inconformity
withthesaiddeclaration ,theCommunity andthe
Member States must increase their efforts to
promote international action toprotect the
environment andtomeet thespecific needs and
requirements ofitspartners inthedeveloping
world andinCentral andEastern Europe .production andconsumption ofenergy should be
rationalized ;and
consumption andbehaviour patterns ofsociety
itself should bealtered .
7.Itisclear that sustainable development isnot
something which will beachieved over aperiod
asshort asthat covered bythisProgramme .
'Towards Sustainability "should beseen ,
accordingly ,asanimportant steponly ina
longer-term campaign tosafeguard the
environment and thequality oflifeofthe
Community and,ultimately ,ourplanet .
Thecredibility oftheindustrialised world ,
including theCommunity ,from theviewpoint of
developing countries willbecommensurate with
theextent towhich itputsitsown house inorder .
Inadopting andimplementing thisProgramme ,
theCommunity willbeinaposition tooffer the
leadership foreseen intheDublin Declaration .TheCommunity 'sRoleintheWider
International Arena
8.Intheearly stages ,Community policy andaction
ontheenvironment were mainly focussed onthe
solution ofparticularly acute problems within the
Community .Later there wasaclearer recognition
thatpollution didnotstopatitsfrontiers andthat
itwas necessary ,therefore ,tointensify co¬
operation withthird countries .Inrecent years ,the
evolution hasgone astepfurther anditisnow
generally accepted thatissues ofaglobal nature -
climate change ,ozone depletion ,diminution ofTheNew Strategy forEnvironment
and Development
11Theapproach adopted indrawing upthisnew
policy programme differs fromthatwhich applied
inprevious environmental action programmes : □

*Itfocuses ontheagents andactivities which
deplete natural resources andotherwise damage
theenvironment ,rather thanwaitforproblems to
emerge ;
• Itendeavours toinitiate changes incurrent trends
and practices which aredetrimental tothe
environment ,soastoprovide optimal conditions
forsocio-economic well -being andgrowth forthe
present andfuture generations ;
• Itaimstoachieve suchchanges insociety 'spatterns
ofbehaviour through theoptimum involvement
ofallsectors ofsociety inaspirit ofshared
responsibility ,including public administration ,
public andprivate enterprise ,andthegeneral
public (asbothindividual citizens andconsumers );
*Responsibility willbeshared through asignificant
broadening oftherange ofinstruments tobe
applied contemporaneously totheresolution of
particular issues orproblems ;Thesuccess ofthisapproach willrelyheavily on
theflowandquality ofinformation both inrelation
totheenvironment and asbetween thevarious
actors ,including thegeneral public .Therdleof
theEuropean Environment Agency isseen as
crucial inrelation tothe evaluation and
dissemination ofinformation ,distinction between
realandperceived risksandprovision ofascientific
and rational basis fordecisions and actions
affecting theenvironment andnatural resources .14
Inrelation tothemotivation ofthegeneral public ,
themain tasks will falltolevels other than the
Community level .TheCommission ,foritspart,
willcommit itsinformation services toacampaign
ofenvironmental information and awareness ¬
building .
Theimportance ofeducation inthedevelopment
ofenvironmental awareness cannot beoverstated
andshould beanintegral element inschool
curricula from primary level onwards .15
Environmental Challenges and
Priorities12Foreach ofthemain issues ,iong-term objectives
aregiven asanindication ofthesense ofdirection
orthrust tobeapplied inthepursuit ofsustainable
development ,certain performance targets are
indicated fortheperiod uptotheyear2000 and
arepresentative selection ofactions isprescribed
with aview toachieving thesaidtargets .These
objectives andtargets donotconstitute legal
commitments but,rather ,performance levels or
achievements tobeaimed atnow intheinterests
ofattaining asustainable development path .
Neither should alltheactions indicated require
legislation atCommunity ornational level .(Note :
Because ofsubstantial disparities andshort ¬
comings inboththequantity andquality ofdata
available ,ithas notbeen possible tohave
homogenous levels ofprecision intheobjectives
andtargets included intheProgramme ).The Programme addresses anumber of
environmental issues :climate change ,
acidification andairpollution ,depletion ofnatural
resources andbiodiversity ,depletion andpollution
ofwater resources ,deterioration oftheurban
environment ,deterioration ofcoastal zones ,and
waste .This listisnotanexhaustive one but,
pursuant totheprinciple ofsubsidiarity ,it
comprises matters ofparticular seriousness which
have aCommunity-wide dimension ,either
because ofInternal Market ,cross-boundary ,shared
resource orcohesion implications andbecause
they have acrucial bearing onenvironmental
quality andconditions inalmost allregionsof the
Community .16
13TheProgramme takes account ofthediversity of
situations invarious regions oftheCommunity
and,inparticular ,oftheneed fortheeconomic
andsocial development ofthelesswealthy regions
oftheCommunity .Itaimstoprotect andenhance
theinherent advantages ofthese latter regions and
toafford protection totheirmore valuable natural
assets asaresource-base foreconomic
development andsocial improvement and
prosperity .Inthecaseofthemore developed
regions oftheCommunity ,theaimistorestore or
maintain thequality oftheir environment and
natural resource basefortheircontinued economic
activity andquality oflife.These issues areaddressed not somuch as
problems ,butassymptoms ofmismanagement
andabuse .Thereal "problems ",which cause
environmental lossanddamage ,arethecurrent
patterns ofhuman consumption andbehaviour .
Withthisdistinction inmind andwithduerespect
totheprinciple ofsubsidiarity ,priority willbe
given tothefollowing fields ofaction with aview
toachieving tangible improvements orchanges
during theperiod covered bytheProgramme :
*Sustainable Management ofNatural Resources :
soil,water ,natural areas andcoastal zones17
Ш

*Integrated Pollution Control andPrevention of
WastetheInternal Market .
*Reduction intheConsumption ofNon-
Renewable Energy
*Improved Mobility Managemenfincludingmore
efficient andenvironmentally rational location
decisions andtransport modes
*Coherent packages ofmeasures toachieve
improvements inenvironmental quality inurban
areas ;20.The three pillars onwhich theenvironment /
industry relationship willbebased willbe:
*Improved resource management with aview to
bothrational useofresources andimprovement
ofcompetitive position ;
*Useofinformation forpromotion ofbetter
consumer choice andforimprovement ofpublic
confidence inindustrial activity andcontrols
andinthequality ofproducts ;
*Community standards forproduction processes
andproducts ;
Indeveloping measures toensure thesustainability
oftheindustrial sector ,special consideration will
begiven totheposition ofsmall andmedium
enterprises andtothematter ofinternational
competitiveness .*Improvement ofPublic Health andSafety ,with
special emphasis onindustrial riskassessment
andmanagement ,nuclear safety andradiation
protection .
Selected Target Sectors
18.Fivetarget sectors have been selected forspecial
attention under thisProgramme :INDUSTRY ,
ENERGY ,TRANSPORT ,AGRICULTURE and
TOURISM .These are sectors where the
Community assuch hasaunique roletoplayand
where aCommunity approach isthemostefficient
level atwhich totackle theproblems these sectors
cause orface .They areaIsochosen because ofthe
particularly significant impacts thatthey have or
could have ontheenvironment asawhole and
because ,bytheir nature ,theyhave crucial rolesto
play intheattempt toachieve sustainable
development .Theapproach tothetarget sectors
isdesigned notonly fortheprotection ofpublic
health andtheenvironment assuch ,butforthe
benefit andsustainability ofthesectorsthemselves .Inmid-1992 theCommission willpublish a
comprehensive Communication oninternational
competitiveness and protection ofthe
environment .
Energy :
21.Energy policy isakeyfactor intheachievement of
sustainable development .While theCommunity 's
energy sector ismaking steady progress indealing
with local andregional environmental problems
such asacidification ,global issues aredaily
growing inimportance .Thechallenge ofthe
future willbetoensure thateconomic growth ,
efficient andsecure energy supplies andaclean
environment arecompatible objectives .
Industry :
19.Whereas previousenvironmental measures tended
tobeproscriptive incharacter with anemphasis
onthe"thou shalt not*approach ,thenewstrategy
leans more towards a"let'swork together *
approach .Thisreflects thegrowing realization in
industry andinthebusiness world thatnotonly is
industry asignificant partofthe(environmental )
problem butitmust also bepartofthesolution .
The new approach implies ,inparticular ,a
reinforcement ofthedialogue with industry and
theencouragement ,inappropriate circumstances ,
ofvoluntary agreements andother forms ofself¬
regulation .22.Theachievement ofthisbalance requires a
strategic perspective well beyond theperiod
covered bythisProgramme .Thekeyelements of
thestrategy upto2000 willbeimprovement in
energy efficiency andthedevelopment ofstrategic
technology programmes moving towards aless
carbon-intensive energy structure including ,in
particular ,renewable energy options .
Transport :
23.Transport isvitaltothedistribution ofgoods and
services ,totrade andtoregional development .
Present trends intheCommunity'stransport sector
areallleading towards greater inefficiency ,
congestion ,pollution ,wastage oftimeandvalue ,
damage tohealth ,danger tolifeandgeneral
economic loss.Transport demand andtraffic areNevertheless ,Community action isand will
continue tobeanimportant element inthe
avoidance ofdistortions inconditions of
competition andpreservation oftheintegrity of□

expected toincrease even more rapidly withthe
completion oftheInternal Market andthepolitical
andeconomic developments inCentral andEastern
Europe .(both asregards agricultural products andwider
trade agreements ).Itisnotonlyenvironmentally
desirable ,therefore ,but also makes sound
agricultural ,social andeconomic sense toseekto
strike amore sustainable balance between
agricultural activity ,other forms ofrural
development andthenatural resources ofthe
environment .24.Astrategy forsustainable mobility willrequire a
combination ofmeasures which includes :
*improved land-use /economic development
planning atlocal ,regional ,national andtrans ¬
national levels ;27.The Programme builds ontheCommission 's
proposals forreform ofthe CAP and for
development oftheCommunity 'sforests soasto
work towards abalanced and dynamic
development oftherural areas oftheCommunity
which willmeet thesector 'sproductive ,social
andenvironmental functions .*improved planning ,management anduseof
transport infrastructures and facilities ;
incorporation ofthereal costs ofboth
infrastructure and environment ininvestment
policies anddecisions andalsoinusercosts ;
*development ofpublic transport and
improvement ofitscompetitive position ;
*continued technical improvement ofvehicles
and fuels ;encouraged useoflesspolluting
fuels ;Tourism :
28.Tourism isanimportant element inthesocial and
economic lifeoftheCommunity .Itrefleas the
legitimate aspirations oftheindividual toenjoy
newplaces andabsorb different cultures aswell
astobenefit from activities orrelaxation away
fromthenormal home orwork setting .Itisalsoan
important economic asset tomany regions and
cities oftheCommunity and has aspecial
contribution tomake totheeconomic andsocial
cohesion oftheperipheral regions .Tourism
represents agood example ofthefundamental
linkwhich exists between economic development
andenvironment ,with alltheattendant benefits ,
tensions andpotential conflias .Ifwell planned
andmanaged ,tourism ,regional development and
environment proteaion cangohand inhand .
Respect fornature and theenvironment ,
particularly incoastal zones andmountain areas ,
canmaketourism bothprofitable andlong-lasting .*promotion ofamore environmentally rational
useoftheprivate car,including changes in
driving rules andhabits .
Inconjunction with this Programme ,the
Commission haspublished amore comprehensive
Communication dealing with transport andthe
environment andtheneed toaimforsustainable
mobility .
Agriculture :
25.Thefarmer istheguardian ofthesoilandofthe
countryside .Improvements infarming efficiency ,
increased mechanisation levels ,improved
transport andmarketing arrangements ,increased
international trade infoodproduas andfeedstuffs
have allcontributed tothe fulfillment ofthe original
Treaty objeaives ofassuring theavailability of
foodsupplies atreasonable prices ,thestabilization
ofmarkets and afairstandard ofliving forthe
agricultural community .Atthesame time ,
however ,changes infarming praaices inmany
regions oftheCommunity have ledto
overexploitation anddegradation ofthenatural
resources onwhich agriculture itself ultimately
depends :soil,water andair.29.TheWorld Tourism Organisation predias a
significant increase intourism aaivity toand
within Europe during thisdecade .Most ofthis
increase isIikelytotakepiace intheMediterranean
Region ,andinparticular types oflocations such
ashistoric towns andcities ,mountain areas and
coastal zones .UNEP 'sBlue Plan onthe
Mediterranean predicts adoubling ,atleast ,of
solid wastes andwaste waters resulting from
tourism bytheyear2000 ,andapotential doubl ing
inthelandoccupied bytourist lodgings .
30.The European Community supports tourism
through itsinvestments innecessa ryinfrastruaures ;
itcanalso serve asa"facilitator' inrelation to
other interests .But,inapraaical refleaion ofthe
principle ofsubsidiarity andthespirit ofshared
responsibility ,itismainly atlevels other thanthat26.Inaddition toenvironmental degradation ,serious
problems have emerged inthecaseofcommodity
overproduction andstorage ,ruraldepopulation ,
theCommunity budget andinternational trade□

ofthe Community thattherealwork ofreconciling
tourism activity anddevelopment and the
guardianship ofnatural andcultural assets must
bebrought into asustainable balance ,i.e.by
Member States ,regional andlocal authorities ,the
tourism industry itself andindividual tourists .andeducation andprofessional andvocational
education andtraining .
(iv)Financial support mechanisms :besides the
budgetary lineswhich have direct environmental
objectives ,such asLIFE,theStructural Funds ,
notably ENVIREG ,contribute significant amounts
tothefinancing ofactions fortheimprovement of
theenvironment .Moreover ,thenew Cohesion
Fund decided upon attheMaastricht Summit
aims atcofinancing projects which areintended
toimprove theenvironment inSpain ,Greece ,
Portugal andIreland .Article 130r.2 ofthenew
Treaty provides thatenvironment policy must aim
atahigh level ofprotection based onthe
precautionary principle andpreventive action ,
taking intoaccount thediversity ofsituations in
thevarious regions oftheCommunity ,andthat
environment policy must beintegrated intothe
definition andimplementation ofother Community
policies .Inthiscontext ,itwillbenecessary to
ensure thatallCommunity funding operations ,
andinparticular ,these involving theStructural
Funds ,will beassensitive aspossible to
environmental considerations andinconformity
with environmental legislation .Byway of
qualification itmust berecalled herethatthenew
Treaty provides ,inArt130s.4 ,thatwithout
prejudice tocertain measures ofaCommunity
nature ,theMember States areresponsible for
financing andimplementing environment policy .The three main lines ofaction indicated inthe
Programme dealwith
•diversification oftourism activities ,including
better management ofthe phenomenon ofmass
tourism ,andencouragement ofdifferent types
oftourism ;
•qualityoftourist services ,including information
and awareness -building ,and visitor
management andfacilities ;
•tourist behaviour ,including media campaigns ,
codes ofbehaviour andchoice oftransport .
Broadening theRange ofInstru ¬
ments
31.Previous action programmes have relied almost
exclusively onlegislative measures .Inorder to
bring about substantial changes incurrent trends
andpractices andtoinvolve allsectors ofsociety
inafullsharing ofresponsibility ,abroader mixof
instruments isneeded .Themixproposed canbe
categorised under fourheadings :
ThePrinciple ofSubsidiarity (i)Legislative instrumentsdesigped tosetfundamental
levels ofprotection forpublic health andthe
environment ,.particularly incases ofhighrisk,to
implement wider international commitments and
toprovide Community-wide rules andstandards
necessary topreserve theintegrity oftheInternal
Market ;32.Theprincipleofsubsidiarity willpiayanimportant
partinensuring thattheobjectives ,targets and
actions aregiven fulleffect byappropriate national ,
regional andlocal efforts andinitiatives .Inpractice
itshould serve totakefullaccount ofthetraditions
and sensitivities ofdifferent regions ofthe
Community andthecost-effectiveness ofvarious
actions andtoimprove thechoice ofactions and
appropriate mixes ofinstruments atCommunity
and/orother levels .(ii)Market-based instruments ,designed tosensitize
both producers and consumers towards
responsible useofnatural resources ,avoidance of
pollution andwaste byinternalising ofexternal
environmental costs (through theapplication of
economic andfiscal incentives anddisincentives ,
civil liability ,etc)andgeared towards "getting
theprices right"sothatenvironmentally-friendly
goods andservicesarenotatamarketdisadvantage
vis-^-vispolluting orwasteful competitors .
(iii)Horizontal ,supporting instruments including
improved base-line andstatistical data ,scientific
research andtechnological development ,(as
respects bothnewless-pollutingtechnologiesand
technologies andtechniques forsolving current
environmental problems )improved sectoral and
spatial planning ,public /consumer informationTheobjectives andtargets putforward inthe
Programme andtheultimate goalofsustainable
development canonly beachieved byconcerted
action onthepartofalltherelevant actors working
together inpartnership .Onthebasisofthe Treaty
ontheEuropean Union (Art.3b),theCommunity
willtakeaction ,inaccordance withtheprinciple
ofsubsidiarity ,onlyifandinsofar astheobjectives
oftheproposed action cannot besufficiently
achieved bytheMember States andcantherefore ,
byreason ofthescale oreffects ofproposed
action ,bebetter achieved bytheCommunity .
0

33.The Programme combines theprinciple of
subsidiarity with thewider concept ofshared
responsibility ;thisconcept involves notsomuch
achoice ofaction atone level totheexclusion of
others but,rather ,amixing ofactors and
instruments attheappropriate levels ,without any
ca 11ingintoquestion ofthedivision ofcompetences
between theCommunity ,theMember States ,
regional andlocal authorities .andexperience andatthedevelopment ofcommon
approaches atpractical level ,under thesupervision
oftheCommission .
(iii)anEnvironmental Policy Review Croup ,
comprising representatives oftheCommission
andtheMember States atDirector-General level
todevelop mutual understanding andexchange
ofviews onenvironment policy andmeasures .
Table 18ofthedocument andthe"actors "column 37.These three dialogue groups will serve ,ina
oftheothertablesindicaterespectivelythemanner special way ,topromote greater sense of
inwhichthevariousactorsareintendedtocombine responsibility among theprincipal actors inthe
andthedifferent actors considered most relevant partenariat ,andtoensure effective andtransparent
fortheimplementation ofspecific measures . application ofmeasures .They arenotintended tospecial way ,topromote greater sense of
responsibility among theprincipal actors inthe
partenariat ,andtoensure effective andtransparent
application ofmeasures .They arenotintended to
duplicate thework ofcommittees established by
Community legislation forthepurposes offollow ¬
upinrespect ofspecific measures ,nor bythe
Commission inrelation tospecific fields ofinterest
such as consumer protection ,tourism
development etc.norbyMember States for
implementation andenforcement ofpolicy at
national level .Finally ,theywillnotsubstitute the
existing dialogue between industry and the
Commission ,which itisintended tostrengthen inMaking theProgramme Work
34.Uptothe present ,environmental protection inthe
Community hasmainly been based onalegislative
approach ("top-down "). The new strategy
advanced inthis Programme implies the
involvement ofalleconomic andsocial partners
("bottom-up "). The complementarity and
effectiveness ofthetwoapproaches together will
depend ,ingreat measure ,onthelevel andquality
ofdialogue which willtakeplace inpursuance of
partnership .anyevent .
Review ofProgramme
38.While theProgramme isessentially targeted
towards theyear2000 ,itwillbereviewed and
"rolled-over "attheendof1995 inthelightof
improvements inrelevant data ,results ofcurrent
research ,andforthcoming reviews ofother
Community policies e.g. industry ,energy ,
transport ,agriculture ,andthestructural funds .35.Inevitably ,itwilltakesome considerable time for
thecurrent patterns ofconsumption andbehaviour
toturninthedirection ofsustainability .Inpractical
terms ,theeffectiveness ofthestrategy wil Idepend ,
fortheforeseeable future ,ontheinherent quality
ofthemeasures adopted and thepractical
arrangements fortheir enforcement .Thiswill
require better preparation ofmeasures ,more
effective co-ordination with andintegration into
other policies ,more systematic follow-up and
stricter compliance-checking andenforcement .
36.Forthese reasons -butwithout prejudice tothe
Commission 'sright ofinitiative and its
responsibility toensure satisfactory
implementation ofCommunity rules -the
followingad hocdialogue groups wilIbeconvened
bytheCommission :
(i)aGeneral Consultative Forum comprising
representatives ofenterprise ,consumers ,unions
andprofessional organisations ,non-governmental
organisations andlocal andregional authorities ;
(ii)anImplementation Network comprising
representatives ofrelevant national authorities
andoftheCommission inthefield ofpractical
implementation withCommunity measures ;it
willbeaimed primarilyat exchange ofinformationConclusion
39.ThisProgramme itself constitutes aturning point
fortheCommunity .Justasthechallenge ofthe
1980s wascompletion oftheInternal Market ,the
reconciliation ofenvironment anddevelopment
isoneoftheprincipal challenges facing the
Community andtheworld atlarge inthe 1990s .
"Towards Sustainability "isnotaprogramme for
theCommission alone ,noronegeared towards
environmentalists alone .Itprovides aframework
foranew approach totheenvironment andto
economic andsocial activity anddevelopment ,
andrequires positive will atalllevels ofthe
political andcorporate spectrums ,and the
involvement ofallmembers ofthepublic active
ascitizens and consumers inorder tomake it
work .toensure satisfactory
0

40.TheProgramme doesnotpurport to"geteverything
right".Itwilltake alongtimetochange patterns
ofbehaviour andconsumption andtoattain a
sustainable development path .TheProgramme ,
accordingly ,isintended primarily tobreak the
current trends .Thebottom lineisthatthepresent
generation must passtheenvironment ontothe
next generation inafitstate tomaintain public
health andsocial andeconomic welfare atahigh
level .Asanintermediate goal ,thestate ofthe
environment ,thelevel andquality ofnatural
resources andthepotential forfurther development
attheendofthisdecade should reflea amarked
improvement onthesituation which obtainstoday .
The road tosustainability may belong and
difficult ...butthefirststeps must betaken NOW !These tables arestruaured soastoindicate :
*thelong-term objeaives inthevarious fields ;
*thequalitative orquantitative targets tobe
attained bytheyear2000 ;
*thespecific aaions required tobetaken ;
*thetime-frame proposed forsuch aaions ;
*theaaors orseaors ofaaivity which willbe
called upon toplay apart .
Pursuant totheprinciple ofsubsidiarity ,thelead
r6leisindicated bytheuseofanitalic type-face
e.g.MS. .
45.Finally ,Part Iattempts toindicate how
responsibility caninpraaice beshared (Ch.8)
andthemeasures proposed toensure satisfaaory
implementation andenforcement (Ch.9). Structure oftheDocument
46.Part IIsummarises theenvironmental threats and
issues inthewider international sphere (Ch.10)
andwhat willorcanbedone bytheCommunity
anditsconstituent Member States inthecontext of
both general international andbilateral co¬
operation (Ch.11and 12,resp.)inrelation to
global andregional issues andtoenvironment
anddevelopment issues indeveloping countries
andCentral andEastern Europe .Chapter 13deals
with the United Nations Conference on
Environment andDevelopment which willtake
place inJune 1992 .Italsorefers tothecorrelation
between theinternal andexternal dimensions of
theCommunity 'spolicy ontheenvironment .41.Thedocument isdivided intothree parts ,thetwo
main parts being related tointernal andexternal
aaions .This distinaion ismade soastoreflea
what canpolitically andlegally bedone within
theCommunity itself inaccordance with the
powers and procedures incorporated inthe
Treaties ,and what theCommunity and its
constituent Member States can contribute or
achieve inpartnership withother developed and
developing countries inrelation toglobal or
regional issues andproblems .
42.Part Isummarises thestate oftheenvironment in
theCommunity andgrowing threats toitsfuture
health (Ch.1)andsetsoutanewstrategy designed
tobreak thecurrent trends andtosetanew course
forsustainable development (Ch.2).Thestrategy
entails aaive involvement ofallthemain aaors in
society (Ch.3)using abroader range ofinstruments ,
including market-related instruments and
improved information ,education andtraining
(Ch.7)soastoachieve identifiable orquantiflable
improvements intheenvironment orchanges in
consumption andbehaviour (Ch.5).47.Partlll isquite short andverygeneral ,dealing with
theseleaion ofpriorities (Ch.14),thequestion of
costs (Ch.15)andtheintention tocarry outamid ¬
term review oftheProgramme in1995 (Ch.16).
While inadocument which putsforward apolicy
andstrategy aimed atbreaking trends there isless
aquestion ofseleaing priority aaions thandefining
a"critical path",nevertheless ,theProgramme does
include alisting ofhorizontal measures andfields
ofaaion which require tobeaccorded priority .
Onthequestion ofcosts thedocument points to
thedifficultiesof undertaking suchexercise (partly
because ofthetraditional praaice oftreating the
environment asaninfinite source offree raw
materials andwaste sinks ,andpartly because not
enough hasbeen done todetermine therealcosts
of"non-action *)andputsforward a5-point plan
todevise appropriate costing mechanims forthe
future .43.Aspecial ,concentrated ,effort willbemade inthe
case offivetarget seaors ofCommunity-wide
significance (Ch.4)andinrelation totheavoidance
andmanagement ofrisks andaccidents (Ch.6).
44.Inaneffort tobeboth concise and asclear as
possible ,themeasures which together constitute
theaaion programme aresetoutinaseries of
tables which arepredominantly ,though not
entirely ,homogenous .
10

CONTENTS
Page
Executive Summary 3
Introduction :TheChallenge ofthe"90s" 15
PART I:APolicy andStrategy fortheEnvironment andSustainable
Development within theEuropean Community
1.TheState oftheEnvironment :Progress andProspects21
23
TheFifth Programme :ANew Strategy fortheEnvironment and
Sustainable Development2.
25
TheActors :
3.1Public Authorities
3.2Public andPrivate Enterprise
3.3The General Public3. 26
26
27
27
Selected Target Sectors :
4.1Industry
4.2Energy
4.3Transport
4.4Agriculture
4.5Tourism4. 28
28
31
33
35
38
Thèmes andTargets oftheProgramme
5.1Climate Change
5.2Acidification andAirQuality
5.3Protection ofNature andBio-diversity
5.4Management ofWater Resources
5.5The Urban Environment
5.6Coastal Zones
5.7Waste Management
Management ofRisks andAccidents :
6.1Industry-Related Risks
6.2Nuclear Safety andRadiation Protection
6.3Civil Protection andEnvironmental Emergencies5. 41
41
43
47
49
51
53
54
57 6.
57
60
63
Broadening theRange ofInstruments :
7.1Improvement ofEnvironmental Data
7.2Scientific Research andTechnological Development
7.3Sectoral andspatial planning
7.4Theeconomic approach :getting theprices right
7.5Public information andéducation
7.6Professional éducation andtraining
7.7Financial support mechanisms
Subsidiarity andShared Responsibility
Implementation andEnforcement oftheProgramme within the
Community64 7.
64
65
66
67
68
69
70
73 8.
0
9.
75

PART II:TheCommunities' Role intheWider International Arena 79
Introduction 81
10.Environmental Threats and Issues
10.1 Global Issues
10.2Problems ofRegional orLocal Concern
11.International Co-operation
11.1 TheCommunity 'sPosition ontheMajor Issues
11.2Other Priority Issues ofMajor International Importance
11.3Global Partnership
11.4Régional Co-operation
11.5Institutional Issues82
82
82
84
84
85
85
86
86
12.Bilateral Co-operation
12.1 Developing Countries
12.2 Central andEastem Europe
13.UNCED :TheUnited Nations' Conference onEnvironment and
Development87
87
89
92
PART III:Priorities ,Costs ,Review 93
14.Sélection ofPriorities 95
15.TheQuestion ofCosts 96
16.Review oftheProgramme 97
Conclusion 98

TablesPage
1Energy consumption projections for2010andtheir implications
2Energy (Measures required upto2000 )
3Transport (Objectives ,measures andinstruments )
4Agriculture andForestry (Objectives ,measures andinstruments )
5Tourism (Objectives ,measures andinstruments )
6Programme framework forselected target sectors
7Climate change (Objectives ,targets andmeasures upto2000 )
8Acidification (idem )
9Airquality (idem )
10Nature andbiodiversity (idem )
11Water quantity andwater quality (idem )
12 Noise (idem )
13Coastal areas (idem )
14Waste management (idem )
15Kiskmanagement (idem )
16Nuclear safety (idem )
17 Horizontal measures (idem )
18Examples ofShared Responsibility
19International environmental issues (Objectives ,targets measures upto2000 )32
33
35
37
39
40
42
46
46
48
50
51
53
56
59
62
72
74
91
Figures
1Sustainable development
2a.ARegulatory Process topromote environmentally friendly andcompetitive industry
2b.Thepotential ofConsumer Power toinfluence manufacturing processes andproducts
3Acidification intheEuropean Community 1990
4Acidification intheEuropean Community 2010 :Conventional Wisdom scenario
5Acidification intheEuropean Community 2010 :High Prices scenario
6Nature Conservation (Diagram )
7Urban Environment (Diagram )
8Waste Management (Diagram )
9Existing Chemicals (Diagram )
10Acidification inEurope 1990
11Acidification inEurope 2000Page
24 1
30
30
42
44
44
47
52
55
58
88
88
13

ListofAbbreviations Used
OECD Organisation forEconomic Co-operation and
Development
PHARE Aprogramme ofAssistance forthe
restructuring oftheEconomies ofPoland
andHungary ,initially ,andnowextended to
other Central andEastern European countries
R&D Research andDevelopment
RIVM (Maps )Rijksinstituut voor Volksgezondheid en
Milieuhygiene (National Instituteof Public Health
andEnvironmental Protection ,TheNetherlands )
SME Small andMedium-sized Enterprises
toe tonsofoiléquivalent
UN United Nations Organisation
UNCED United Nations Conférence onEnvironment
andDevelopment (Riode Janeiro ,June1992 )
UNDP United Nations Development Programme
UNDRO United Nations Disaster and Relief
Organisation
UN-ECE United Nations Economie Commission forEurope
UNEP United Nations Environment Programme
WHO World Health OrganisationOrganisations ,Associations etc.
ACP African ,Caribbean andPacific countries
ALA Asian and Latin American countries ALA
BAT Bestavailable technology
CAP European Community 's Common
Agricultural Policy
CEE Central andEastern European countries
CITES Convention onInternational Trade in
Endangered SpeciesofWild Fauna andFlora
EAGGF European Agricultura !Guidance and
Guarantee FundSME
toe
UN
(Tables )refers toaction atCommunity level
European Currency Unit
(Tables )European Environment Agency
European FreeTrade Association
Environmental Impact Assessment
European Investment Bank
European Regional Development Fund
European Social Fund
Food andAgricultural Organisation
General Agreement onTariffs andTrade
Gross Domestic ProductEC
ECU
EEA
EFTA
EIA
EIB
ERDF
ESF
Chemical Formulae and References
CO Carbon MonoxideFAO
GATT
Carbon Dioxide co2
GDP
Chlorofluorocarbon CFC
GEF Global Environment Facility
IIASA International Institute forApplied Systems
Analysis (Austria )
IMO International Maritime Organisation
IPC Integrated Pollution Control
IPCC Intergovernmental Panel onClimate Change
LA (Tables )refers toactions atLocal andRegional
Authority Level
leqdB(A )Mean Sound level related toman
MS (Tables )refers toactions atMember State levelMethane сн4
Genetically Modified Organism
Hydrocarbon
Nitrous OxideGMO
НС
Ν2Ο
Nitrogen Dioxide
Nitrogen OxidesNOj
LA NOx
Ammonia NH3
O, Ozone
MS
Sulphur Dioxide
Volatile Organic Compoundso2
Non Governmental Organisation NGO
voc
14

INTRODUCTION
15

TheChallenge ofthe1990s
Asfarback as1972 ,when theCommunities first havetofaceuptothechallengesoffurtherenlargement .
became involved inenvironmental protection ,the Itwillhave totakeaccount ofpolitical andeconomic
Heads ofState andGovernment oftheMember States changes which areoccurring inCentral andEastern
declared that : Europe and oftheneed todevelop theEuropean declared that : Europe andoftheneed todevelop theEuropean
Economic Area .TheCommunity isalsocommitted to
"Economic expansion isnotanendinitself ...itshould reviewing itsapproach totheStructural Funds ,the
result inanimprovement inthequality oflifeaswell Common Agricultural Policy ,Transport Policy and
asthestandard ofliving " Energy Policy . Energy Policy .
Justasinthe 1980s theprincipal challenge faced by
theEuropean Communities wasthecompletion oftheDevelopments atGlobal level
Internal Market ,sonow inthe 1990s thechallenge is
tograduate toadevelopment pathwhich willbe There isgrowing worldwide concern atthecontinuing
sustainable . deterioration ofthestateoftheenvironment andthe
serious degradation ofglobal life-support systems .A
Community HeadsofStateandGovernmentrecognised crucial element oftheCommunity 'sstrategy forthe
thischallenge during theirSummit inDublin inJune 1990s ,developed inmore detail inthisdocument ,is
1990where theystated : topromote policies andprogrammes thatwillimprove
thequality ofhuman lifeworldwide through amore
"Werecognise ourspecial responsibility forthe equitable distribution ofnatural resources .
environment both toourown citizens andtothewider
world .Weundertake tointensify ourefforts toprotect Thedrive toraiseiivmg standards ,alleviate poverty ,
andenhance thenatural environmentof theCommunity increase lifeexpectancy andimprove foodsecurity
itselfandtheworld ofwhich itispart .Weintend that places aconsiderable burden ontheworld 'snatural
action bytheCommunity anditsMember Stateswillbe resource base .TheCommunity isconscious ofthefaa
developedona coordinated basisandontheprinciples that,along withother industrialised countries ,itsown
ofsustainable development andpreventive and 340million inhabitants currently consume a
precautionary action ...Theobjective ofsuchaction disproportionate share oftheworld 'sresources .Per
mustbetoguarantee citizens therighttoaclean and capita consumption ofenergy intheCommunity for
healthy environment ...Thefullachievement ofthis example ,although halfthatoftheUSAandCanada ,is
objective mustbeashared responsibility ." over 10times greater thanthatofmany developing
countries .Achild born intheCommunity willconsume
Tho nf‘ttato anH c~/wpmmpnt wpnt nntr>actthp over 20times asmuch ofnatural resources over its TheHeads ofState andGovernment went ontoaskthe
lifetime asachild born inthemajority ofdeveloping Commission totake account ofthisapproach inits ntetime asacnna Dorn intnemajority ordeveloping
preparation oftheFifthAction Programme onthe countriesfalthough stillhalfthatofan American child ).
Environment .This document istheresponse tothat
request andisdesigned tospelloutastrategy and Many ofthemeasures foreseen inthisProgramme are
programme forenvironmental action totheendofthe designed toreduce wasteful consumption ofresources
present century andbeyond . andtoincrease productivity within theCommunity .It
willnevertheless require great ingenuity andcreativity
toservice theadditional needs ofboth thedeveloped
Developments within theCommunity -"K''“wS
Withinthetime-frameofthisProgrammegreat changes resource base .Thiswillimply insome instances
areenvisaged .Development oftheInternal Market inprofound changes inconsumption patterns and
Europe andtheneed toachieve economic andsocial lifestyles ,
cohesion have major implications inrelation to
environment policy asindeed was recognised in
theSingle European Act:theincreased economic Towards Sustainable Development
growth expected will beunsustainable unless
environmental considerations aretaken intoaccount ,Allhuman activity ,economic andsocio-cultural ,either
notsomuch asapotential limiting factor ,butrather asprospers orfounders onthequality oftherelationship
anincentive togreater efficiency andcompetitivity ,between society andthenatural world .Development
withparticular reference tothewider international 'S"real"onlyifitimproves thequality oflife.The 1987
market-place Report oftheWorld Commission onEnvironment and
Development -generally referred toastheBrundtland
Atthesame time ,theCommunity ismoving towards Report-urgedthathumanactivityshouldfollowapath
closer economic andmonetary union andwillprobably which sustains human activity progress fortheentireDevelopments within theCommunity
AlIhuman activity ,economic andsocio-cultural ,either
prospers orfounders onthequality oftherelationship
between society andthenatural world .Development
0

planet intothedistant future .Inthiscontext sustainable
development wasdefined as "development which
meets theneeds ofthepresent without compromising
theability offuture generations tomeet their own
needs ".Itentails preserving theoverall balance and
value ofthenatural capital stock ,redefinition ofshort ,
medium andlong-term cost/benefit evaluation criteria
and instruments toreflect thereal socio-economic
effects andvalues ofconsumption andconservation ,
andtheequitable distribution anduseofresources
between nations andregions over theworld asa
whole .Inthelatter context ,theBrundtland Report
pointed outthatthedeveloped countries ,withonly
26%oftheworld population ,areresponsible for
about 80%ofworld consumption ofenergy ,steel and
other metals ,andpaper andabout 40%ofthefood .
The following characteristics ofsustainable
development were identified :
-itmaintains theoverall quality oflife;
-itmaintains continuing access tonatural
resources ;
-itavoids lasting environmental damage .aresult ofcompletion oftheInternal Market and
political andeconomic developments inCentral and
Eastern Europe andfurther afield callforeven more
effective measures .
Institutional Developments
Atinstitutional level ,theextraordinary growth inpublic
awareness ,scientific perception and political
importance ofenvironment issues wasreflected inthe
Treaties bytheinsertion through theSingle European
Act,ofaseparate Chapter ontheenvironment andthe
inclusion ofasignificant environment element inthe
keyarticle relating tothecompletion oftheinternal
market .These modifications provided ,forthefirst
time ,astatutory mandate ,objectives andcriteria for
Community policy andaction inthefield ofthe
environment .
ThenewTreaty onEuropean Union ,which wassigned
byalItheMember States on7February 1992,contai ns
anumber ofprovisions which willbring careforthe
environment into anew dimension :Inmore prosaic terms ithasbeen defined bythe
admonition :"Don'teattheseed corn which isneeded
tosownextyear 'scrop".Such adefinition isuseful in
injecting animportant doseofrealism intothedebate
onsustainability .Inpractical terms ,therefore ,the
concept ofsustainability isultimately linked veryclosely
toasociety 'sorregion 'sprospects ofcontinued
development andsuccess and,inthecaseofindividual
enterprises ,even their profit andlossaccounts .among thePrinciples ,Article 2refers tothe
promotion of"aharmonious andbalanced
development ofeconomic activities ,sustainable
andnon-inflationary growth respecting the
environment
Article 3(k)provides that theactivities ofthe
Community shall include apolicy inthesphere of
theenvironment ;Article 730r.2provides ,interalia,
thatthispolicyshallaimat ahighlevelofprotection
andthatitshall bebased ontheprecautionary
principle ;Building onSolid Foundations
Itisimportant tobear inmind thatinmoving towards
sustainable development theCommunity isnotstarting
from zero .Thestrategy andprogramme setoutinthis
document have been built onwhat hasalready been
achieved both attheCommunity level and inthe
Member States .The Community has had an
environment policy foralmost twenty years ,despite
thefactthattheenvironment was notmentioned inthe
original Treaties .Inthattime ,significant advances
have been made interms ofboth elaboration ofan
extensive legislative framework intheMember States
andactual improvements inenvironmental protection
andquality .Article 130r,2 goes ontostipulate that
environmental protection requirements must be
integrated intothedefinition andimplementation
ofother Community policies ;
Article 3battaches special value totheprinciple
ofsubsidiarity while Article Astates theobjective
ofhaving decisions taken asclosely aspossi bleto
thecitizens .
Moreover Article 130s.5 addressesthe case ofmeasures
involving disproportionate costs for the
public authorities ofaMember State .This article
reflects theneed totake into account economic and
social cohesion intheformulation ofenvironmental
policy .This need isalsorecalled inArticle 130r.3
according towhich ,inpreparing itspolicy onthe
environment ,theCommunity shal Itakeaccount ofthe
economic andsocial development oftheCommunity
asawhole andthebalanced development ofits
regions .Since 1972 there have been fourCommunity action
programmes 01ontheenvironment which have given
risetoabout 200piecesof legislation covering pollution
oftheatmosphere ,water andsoiI,waste management ,
safeguards inrelation tochemicals andbiotechnology ,
product standards ,environmental impact assessments
andprotection ofnature .Much hasbeen achieved
overthisperiod butthecurrent paceofchange andthe
additional pressures which arebeing orwillbeimposed
ontheenvironment andthenatural resource stocks as18
01 OJN°C 112,20.12.1973 -N°C139,13.6.1977 -N°C46,17.2.1983 -N°C328 ,7.12.1987

Inaddition ,theagreed changes intheCommunity 's
decision-making procedures providing formajority
voting bytheCouncil ofMinisters onmost environment
issues andthestrengthening oftheroleoftheEuropean
Parliament inthis sector through theco-decision
procedure should improve theefficiency andthequality
ofthelegislative process inthefuture .participation ofallthemain actors insociety
(administrations ,enterprises ,general public )through
abroadening anddeepening oftheinstruments for
control andbehavioural change including ,inparticular ,
greater useofmarket forces .
TheChallenge ofthe1990s
Theattainment ofsustainable development callsfora
far-sighted ,cohesive andeffective approach .Itwill
demand considerable political and practical
commitment over anextended time-frame .The
Community ,asthelargest economic /trading partner in
aworld where itisincreasingly seenthatgrowth hasto
beenvironmentally sustainable ,must exercise its
responsibility toboth present andfuture generations .
Tothisenditmust putitsown house inorder and
provide anexample todeveloped anddeveloping
countries alike inrelation totheprotection ofpublic
health andtheenvironment andthesustainable useof
natural resources .What isNEW about thisProgramme ?
Infacing uptotheenvironmental challenges inthis
finaldecade ofthemillenium andinendeavouring to
move towards asustainable development path itis
necessary tofocus ontheagents andactivities which
damage theenvironment anddeplete thenatural
resource stock rather thanwait,ashasbeen thetendency
inthepast,forproblems toemerge .Aspreviously
stated ,thiswillrequire significant changes incurrent
patterns ofhuman consumption andbehaviour .These
objectives cannot bemetbyaction atCommunity level
alone ,butratheron thebasisofasharing ofresponsibility
atalllevels ofsociety including governments ,regional
andlocal authorities ,non-governmental organisations ,
financial institutions ,production ,distribution andretail
enterprises andindividual citizens .
While itisappropriate thatthestrategy andprogramme
should beprepared atCommunity level ,since itisthe
solepoint atwhich alltherequired measures and
actions can bebrought together ,thepractical
implementation thereof wi 11falltobecarried outatthe
appropriate levels inacomplementary manner andin
accordance with theability toact.Thebasic strategy
therefore istoachieve fullintegration ofenvironmental
andother relevant policies through theactiveTheDublin Declaration states that"theenvironment is
dependent onourcollective actions ;tomorrow 's
environment depends onhowweacttoday ".There is
now aperceptible feeling throughout theCommunity
andfurther afield thatmany ofthegreat environmental
struggles willbewonorlostduring thisdecade ;and
thatbythenextcentury itcould betoolate.
WECANNOT AFFORD TOWAIT
AND BEWRONG !••••
19

PART I
APolicy andStrategy forthe
Environment and Sustainable
Development within
theEuropean Community
21

Chapter 1:
The State oftheEnvironment :Progress andProspects
Astrategy forthefuture cannot beconstructed without
analysing what thepresent situation isandwhat has
occurred inthepast .Inconjunction withthepublication
ofthe5thProgramme ,andunderpinning itsessential
strategy ,anup-dated Report ontheState ofthe
Environment isbeing published .Among themain
conclusions which canbedrawn from thatReport are
thefollowing :Mediterranean Region ,withsevere outbreaks now
occurring annually .Further pressure from
recreational and associated second-home
development isgiving risetodeterioration in
upland andmountain regions .
The Urban Environment :The difficulties in
reconciling theneed tomeet thedemands of
modern commerce andtransport with thedesire
toprovide agood quality living environment are
steadily growing with resulting congestion ,
pollution ,noise ,deterioration ofstreets ,public
places andarchitectural heritage andgeneral loss
ofamenity .Atmospheric Pollution :Some progress hasbeen
made inreducing emissions ofsulphur dioxide
andsuspended particulates ,lead andCFCs ,but
serious problems continue toexist orareemerging
asrespects ononehand ,anumberof "greenhouse *
gases such as,carbon dioxide ,nitrous oxides ,
ozone andmethane ,andontheother hand ,air
quality problems ,especially inurban areas .Waste Management :Despite Directives going
back to1975onwaste ingeneral ,ontoxic and
hazardous wastes andontransfrontier shipment
ofwastes ,management oftheCommunity 's
enormous waste stream isfarfrom being under
control .Recycling and reuse options have not
been developed beyond theinfancy stage inmost
areas .Deficiencies inwaste handling arrangements
pose athreat notonly totheenvironment but
couIdhave undesi rable impl ications inthecontext
ofcompletion oftheInternal Market .Aquatic Pollution :Some progress hasbeen
achieved with point sources ofinland water
pollution ,butthisisbeing more than offset by
increased pollution from non-point sources ,
notably agriculture .Thequality ofwaters isunder
threat andthere isgrowing eutrophication ofboth
fresh waters andmarine waters .The Directive on
groundwater isnotachieving itsobjectives and ofcompletion oftheInternal Market ,
these resources areunder growing threat from
bothoverexploitation andpollution .Inthecaseof
marine waters ,there have been reductions inSome Disquieting Trends
pollution fromcertain organic wastes ,heavy metals
andradioactive discharges ,butsevere pressures TheReport ontheStateoftheEnvironment alsoclearly
persist ,particularly intheMediterranean Region ,indicates some trends which ,ifnotsatisfactorily
theNorth SeaandtheBaltic Sea . contained ,could have significant negative
consequences forthequality oftheenvironment asaSome Disquieting Trends
SoilDegradation :TheDirectives onwaste whole .Forexample ,
management ,ontheuseofsewage sludge in
agriculture andonuseofnitrates onland and •Energy :a25%
certain aspectsofthe "Seveso *Directiveon major change incurre
accident hazards ofcertain industrial activities resulting ,inturnEnergy :a25% increase by2010 ifthere isno
change incurrent energy demand growth rates ,
resulting ,inturn ,ina20%increase inECcarbon
emissions (reference year 1987) have made orwill make relatively good
contributions totheprotection ofsoils .However ,
over-intensified use ofland and excessive
application ofchemical fertilizers ,pesticides and
herbicides ,andground drainage andclearance
activities arecausing deterioration ofsoils ,
including contamination ,acidification ,
desertification anderosion ,inmany areas .Transport :a25% increase incarownership and
a17%increase inmileage by2000 (reference
year 1990);
Agriculture :a63% increase infertilizer use
between 1970 and1988 ;
Waste :a13% increase inmunicipal waste over
thelast5years ,despite increased recycling of
paper ,glass ,plastics ;Nature Conservation :Despite theDirective on
Wild Birds and theConventions ofBonn and
Berne ,thepressures onunique orendangered
biota andtheir habitats areincreasing .Intensified
agriculture isoneofthemost important causes of
reductions inbiological diversity .Economic
developments anderosion arecausing asteady
deterioration ofthecoastal environment .Forest
fires have devastated many parts oftheWater ,a35%increase intheCommunity 'saverage
water withdrawal ratebetween 1970and 1985;
Tourism :a60% increase inMediterranean tourism
projected by2000 (reference year 1990).23

notbeing fully implemented throughout the
Community ,many oftheexisting instruments arenot
satisfactorily coping with current levels of
environmental degradation .Moreover ,most ofthem
have notbeen designed tomeet theadditional burden
expected toemanate from theupsurge ofeconomic
activity followingon completion oftheInternal Market
andconcomitant energy ,transport andother demands ,
andthechanges which areoccurring inCentral and
Eastern Europe .
Thetime hascome forCommunity environmental
policy tomove into anewgear !Needforanewimpetus
Theprevious fourCommunity action programmes and
themeasures taken toimplement them have had
considerable merit informal orlegal terms andhave
achieved certain environmental improvements in
objective terms .Furthermore ,many oftheactions
decided upon todatestillhave some timetorunbefore
theyshow theirfu11effects onthegeneral stateofthe
environment .
Nevertheless ,whether because they have nothad
sufficient timetoshow fullresults orbecause they are
FIGURE 1:SUSTAINABLE DEVELOPMENT
Airquality management
Water resources management
Soilquality maintenance
Nature ,landscape ,conservation
Energy security andefficiency
Demographic management
(incl .urban env.,public health andsafety )
Waste management
O*MANAGEMENT
OFVALUATION
RESOURCES&
PRICINGI
SUSTAINABLE
DEVELOPMENT
\
MOBILITY
MANAGEMENTPRODUCTION
AND SERVICES
SECTORS
Physical planning incl.EIA
Infrastructure planning
incl .modal choice and EIA
Traffic management
Vehicle pollution controlLocation (ind.EIA)
Operation licences (BAT)
Pollution controls (IPC ,info ,audit )
Environmental accounting
Technological development
Product policy
IndustriaJ waste managementINFORMATIOI'
EDUCATION
TRAIN ING
0

Chapter 2:TheFifth Programme :
ANew Strategy fortheEnvironment and
Sustainable Development
themselves .Theinterdependence ofthevarious policy
areas ,resources andsectors isdepicted inFigure 1over .Theoveral Iobjective oftheCommunity istheimproved
andcontinued welfare ofallitscitizens .Together with
political ,economic andmonetary union theInternal
Market isdesigned tohold constituent Member States
andtheirpeoples together andtomotivate andprovide
theframework fortheir socio-economic growth .The
long-term success oftheInternal Market will be
dependent upon therelative contributions ofthe
industrial ,energy ,regional development and
agricultural policies andtheability ofthetransport
policy literally todeliver thegoods .Allofthese policies
areinterdependent ;theultimate limiting factor for
continued efficiency andgrowth astheyinterface with
one another isthetolerance level ofthenatural
environment .Inaccordance withtheEuropean Council 'sDeclaration
“TheEnvironmental Imperative "theguiding principles
forpolicy decisions under thisProgramme derive from
thePRECAUTIONARY APPROACH andtheconcept
ofSHARED RESPONSIBILITY ,including effective
implementation ofthe"Polluter Pays Principle ".
This Programme continues toaddress major
environmental issues such asclimate change ,
acidification ,water pollution ,soildegradation and
erosion ,waste management ,etc.However ,rather
than bedirected solely atthese issues ,thestrategy of
theProgramme istocreate anewinterplay between
themain groups ofACTORS (government ,enterprise ,
public )andtheprincipal ECONOMIC SECTORS
(industry ,energy ,transport ,agriculture andtourism )
through theuseofanextended ,andintegrated ,range
ofINSTRUMENTS .This canbest bedone efficiently
within theCommunity framework .Without anoverall
Community framework within which allthese activities
canbeintegrated andcoordinated there isadanger
thattheactions carried outbyindividual Member
States orregions ,orbyother actors willnothavetheir
fullimpact ,orthat theintegrity ofCommunity
achievements oractions inother policy areas ,notably
theInternal Market ,could becalled intoquestion .Behind thestrategy setoutinthisProgramme isthe
ultimate aimoftransforming thepatterns ofgrowth in
theCommunity insuch away astoreach asustainable
development path .Among other things thisimplies
that
itberecognized thatcontinued human activity
andfurther economic andsocial development
depend onthequality oftheenvironment andits
natural resources and ontheir satisfactory
guardianship ;
since thereservoir ofrawmaterials isfinite ,the
flowofsubstances through thevarious stages of
processing ,consumption anduseshould beso
managed astofacilitate orencourage optimum
reuse andrecycling ,thereby avoiding wastage
andpreventing depletion ofthenatural resource
stock ;
thebehavioural trends ofcitizens within the
Community should reflea anappreciation that
natural resources arefinite andthatoneindividual 's
consumption oruseofthese resources mustnotbe
attheexpense ofanother 's;andthatneither
should onegeneration 'sconsumption beatthe
expense ofthose following .
Theimplementation ofsuch astrategy ofsustainable
development willrequire aconsiderable change in
almost allmajor policy areas inwhich theCommunity
isinvolved .Itrequires thatenvironmental proteaion
requirements beintegrated intothedefinition and
implementation ofother Community policies ,notjust
forthesake oftheenvironment ,butalsoforthesake
ofthecontinued efficiency oftheother policy areasForeach ofthemain issues ,long-term objectives are
given asanindication ofthesense ofdireaion orthrust
tobeapplied inthepursuit ofsustainable development ,
certain performance targets areindicated fortheperiod
uptotheyear2000 and arepresentative seleaion of
actions isprescribed with aview toachieving thesaid
targets .These objeaives andtargets donotconstitute
legalcommitments but,rather ,performance levels or
achievements tobeaimed atnow intheinterests of
attaining asustainable development path .Neither
should alltheaaions indicated require legislation at
Community ornational level .
Sustainable development isagoalwhich willnotbe
achieved overthisProgramme alone ,butifeffeaively
implemented ,theProgramme should mark asignificant
steponthewaytowards it
25

Chapter 3:TheActors
Uptonow,Community action programmes ontheenvironment have largely been based onlegislation and
controls involving government andmanufacturing industry .Theconcept ofshared responsibi lityrequires amuch
more broadly-based andactive involvement ofalleconomic players including public authorities ,public and
private enterprise inallitsforms ,and,above all,thegeneral public ,both ascitizens andconsumers .Theultimate
objective intheinvolvement ofandinterplay between these economic players (andintheemployment ofa
broader range ofinstruments which willinclude ,inparticular ,market-related incentives )istostrike anew
balance between theshort-term benefit ofindividual persons ,companies andadministrations andthelonger -
termbenefits ofsociety asawhole .Theprinciple ofsubsidiarity andtheconcept ofshared responsibility ,which
willbeapplied intheendeavour tostrike thisnewbalance ,arediscussed inChapter 8below .
3.1Public Authorities
Ther6leofgovernment isadeterminant notonly in
relation tolegislation .Itisequally important in
economic planning and insetting conditions for
economic development ,land usemanagement ,
accessibility ofinformation ,education andtraining ,
market influence through taxation policiesonproducts
(e.g.tobacco andfuels ),etc Further ,while there are
substantial differencies inthesystem ofpublic
administrations intheCommunity ,inmost member
states thepublic authorities alsoactasoperators of
public enterprises ,such asroad networks ,railways ,
airports ,andtheelectricity production sector .Inthe
general endeavour toachieve sustainable development ,
Governments have particularlyonerous responsi biIities
bothinrespect ofstateowned andcontrolled activities
andalso increating thenecessary framework and
conditions ,inproviding incentives andinremoving
obstacles soastoenable theindividual andprivate
enterprise toplaytheir respective roles .
Local andregional authorities have aparticularly
important parttoplayinensuring thesustainability of
development through theexercise oftheir statutory
functions as"competent authorities "formany ofthe
existing Directives andRegulations andinthecontext
ofpractical application oftheprinciple ofsubsidiarity .
Some fields where local andregional authorities can
play adecisive roleare:accordingly ,areparticularly well placed to
influence thelocation ,typeandimpact ofphysical
development ;
Control ofIndustrial pollution :through
responsible useofplanning permissions ,emission ,
discharge and operating licenses ,clean
technologies ,right ofaccess toenvironmental
information etc;
Waste management :strict application ofthe
recognised ranking order inwaste management -
prevention ,re-use andrecycling ,combustion as
fuel,disposal byincineration andlandfill -would
serve bothtoreduce waste disposal problems and
tosave energy andrawmaterials .
Transport :transport andtraffic plans should be
fullyintegrated intotheoverall planning process ;
Public information ,education andtraining :local
andregional authorities ,onthebasis ofexisting
Community legislation on public access to
environmental information ,canfacilitate greater
public involvement inenvironmental protection
andintheimprovement ofpublic confidence ;
those which have direct responsibilities inthe
field ofeducation have particular opportunities
andresponsibilities inrespect ofpublic awareness
andbehaviour ; Spatial planning :application ofsound planning
principles soastosafeguard areas ofvalue ,
including nature reserves and landscapes ,to
improve urban fabric and circulation ,and to
optimise energy andtransport efficiency ;Internal auditing :administrations needtocritically
analyse theirownoperations ,e.g.pubiicservic.es ,
siting ofoffices ,purchasing policies ,choice of
vehicles andequipment ,energy conservation ,
environmental auditing andcommunication of
information tothepublic .Economic development :most authorities have
some function instimulating economic
development intheir areas .Anappropriate degree
ofprudence canensure sustainable useofthe
resources necessary forthat economic
development totakeplace andtoprosper ;
Infrastructural development :local andregional
authorities areprimarily responsible forthe
planning ,provision andmanagement ofroads ,
water supplies ,waste water treatment etc.and,Where applicable ,Central Government should appiy
theabove principles and measu restotheir own
administrations and decisions 'e.g .planning ,
information ,education ,training ,internal auditing ).
Finally ,itwillbeimperative tocommit thenecessary
resources atcentral ,regional andlocal levels toensure
practical implementation .
26

3.2Public andPrivate Enterprise
Dependingon theirnature ,virtually allenterprises use
natural resources fortheir processes andproducts ,
create various types andquantities ofwaste ,and
contribute tothepollution ofair,water andsoil.In
limited cases only have thelongterm costs ofthese
resources andofthepolIution sofarbeen interna Iized
inthecosts ofoperating aplant orintheprice ofthe
finalproduct orservice .Itisclear thattheperpetuation
ofthissituation isnotviable oneither economic or
environmental grounds .There isagrowing awareness
thatindustry 'sown interest isatstake :increasing
demand forclean technologies and products will
create new market opportunities ,with particular
advantages forinnovational companies ;industry also
seestheadvantages interms ofsavings onresources
andenergy ,where environmental considerations are
integrated intomanagement policy .Nevertheless it
remains fortheCommunity andtheMember States to
determine theframework andconditionsfor sustainable
development .expected toparticipate intheeffort tomove towards
sustainability .Theinstruments tobedeveloped and
putinplace willbedesigned togenerate thebroadest
possible response .
Acomprehensive policy relating toconsumer products
willbeimportant ifmarket mechanisms aretohelp
change human behaviour towards theenvironment .In
particular ,itisessential thatenterprises become more
conscious oftheextent towhich their products and
packaging become waste ,andthatthey accept
responsibility forsuch waste .The proposed
Community-wide eco-label should encourage industry
todesign andmanufacture products which have
reduced environmental impacts .Policies should be
developed inawaywhich willalsoserve tofacilitate
consumers inmaking informed choices onthebasisof
safety ,quality ,durability andgeneral environmental
implications .Inthiscontext theretail sector willhave
totakeupitspartoftheresponsibility .
Financial institutions which assume the risk of
companies and plants can exercise considerable
influence -insome cases ,control -over investment
andmanagement decisions which could bebrought
intoplaytothebenefit oftheenvironment .InthisProgramme fiveareas ofactivity aresingled out
astarget sectors .These sectors represent alarge share
oftheoverall economic activity ;their co-operation
andattitude isvital topaving theway towards
sustainability .Notwithstanding thechoice ofcertain
keysectors ,itshould beclearthatallenterprise willbe
3.3The General Public
With respect tothechoice ofproducts andservices ,
certain practical obstacles willhave tobeovercome :
themore ecological friendly product may notbe
available where onenormally does theshopping ,or,
ifavailable ,theprice may behigher than themore
polluting ones .(Itisclear from theexample onthe
differential pricing ofunleaded andleaded fuelthat,if
theprice isattractive ,theconsumer hasincentive to
make achoice infavour oftheenvironment ).And,in
order togainandretain theconfidence ofconsumers ,
environmental claims must bewell founded and be
accompanied byneutral information regarding the
characteristics ofproducts .
Theactive involvement and participation ofnon ¬
governmental organisations (NCOs ),bothenvironment
andconsumer oriented ,aswell astrades unions and
professional associations willbecrucial tothegeneral
process ofawareness-bui Iding,totherepresentation of
public interest andconcern ,andtothemotivation and
engagement ofthemembers ofthegeneral public
themselves .Each member ofthegeneral public hasanumber of
crucial roles toplay :
asanindividual whomaybeconcerned about the
qualityofthegeneral environment ,personal health
andthequality oflifeofsucceeding generations ,
andasaresponsible citizen having thepossibility
ofinfluencing policies anddecisions ;
asadirect producer ofpollution andwaste within
thehome ,asanemployer oremployee ,asa
commuter andinthepursuit ofleisure interests ;
asaconsumer ofgoods andservices ,since the
causesof andsolutions toenvironmenta !problems
areoften afunction ofconsumer choice .
Before theindividual canplayhis /herfullpotential role
inpractice ,anumber ofconditions have tobemet :
good knowledge andinformation isessential torelate
anindividual 'sactivitiesto environmental pollution or
protection asthecase maybe;awareness campaigns
willbeneeded toremedy thissituation .Good intentions
willnotproduce thedesired results unless alternatives
exist,forexample ,separate collections ofwaste ,reliable
public transport systems ,etc.
27

Chapter 4:Selected Target Sectors
Asindicated intheChapter onACTORS above (seePublic andPrivate Enterprise )fivetarge :sectors areselected
forspecial attention under thisProgramme .These sectors have been chosen because they aresectors where the
Community assuch hasaunique roletoplayandwhere aCommunity approach isthemostefficient waytotackle
inanoverall waytheproblems these sectors face .They arealsochosen because oftheparticularly significant
impacts thatthey have orcould have ontheenvironment asawhole andbecause ,bytheir nature ,theyhave
crucial rbles toplayintheattempt toachieve sustainable development .These factors aremore fullydealt with
inChapter 5andinthematerial which follows immediately below onthetarget sectors themselves .
4.1Manufacturing Industry
Theindustrial sector accounts forapproximately 25%
oftheCommunity 'swealth andindustrialization isa
keyelement ofdevelopment strategy bothwithin the
Community andatwider international level .Butinits
exploitation ofnatural resources ,consumption of
energy ,production processes andgeneration ofboth
pollution andwastes ,theindustrial sector isamong the
principal causesof environmental deterioration .Insofar
astheenvironmental consequencesofindustrial activity
mayexceed thetolerance levelofthenatural resource
baseitcanlimitorblock further industrial development
inalocality orregion .competitive itisessential toviewenvironmental quality
andeconomic growth asmutually dependent .For
industry ,asoundly based ,comprehensive environment
policy cancontribute tooptimisation ofresource
management ,public confidence building and
development ofmarket opportunities .Many ofthe
newclean andlow-waste technologies notonlyreduce
pollution substantially ,buteconomize onthe
consumption ofrawmaterials andenergy tosuch
extent thatcost savings canmore than offset initial ,
higher ,investment costs andthereby reduce unit
production costs .Acase inpoint isrepresented inthe
development anduseofnewtechniques inthefieldof
genetic engineering andbiotechnology :these offer
considerable potential foruseful applications in
agriculture ,food processing ,chemicals and
pharmaceuticals ,environmental clean-up and the
development ofnew material andenergy sources .In
recognition oftheimportance ofthisparticular sector ,
theCommission published aCommunication in1991
promoting acompetitive environment forindustrial
activities based onbiotechnology within the
Community 01.Oneoftheprimary goalsof theCommunity 'sindustrial
policy istocreate theframework andconditions fora
strong ,innovative andcompetitive industrial sector
thereby ensuring thecompetitivity andsustainability
ofEurope 'sindustries intheglobal market-place .Itis
notintheoveral Iinterest oftheCommunity tosacrifice
long-term economic andsocial rewards forthesakeof
short-term financial gains .
Previous environment measures have tended tobe
proscriptive incharacter ,with anemphasis onthe
"thou shall not*rather than the"let'swork together "
approach .Asaconsequence ,there hasbeen atendency
toview industrialization oreconomic development
andenvironmental concern asbeing mutually hostile .
Against thebackground ofdeepening concern forthe
environment andnatural resources ,andrealisation of
thenegative economic effects ofenvironmental
degradation ,itisnowclear thatenvironmental lysound
industry isnolonger amatter ofluxury butrather a
matter ofnecessity .Itisequally clear thatmany sectors
ofindustry arethemselves becoming more appreciative
oftheir relationship with andresponsibility forthe
environment andthenatural resource base .One ofthe
keymessages ofthisProgramme isthatinthefieldof
environment ,industry must notonly bepartofthe
problem butalsopartofthesolution .
Inorder toensure thatoptimum conditions exist for
continued economic growth within theCommunity
andthatCommunity industry canidentify thenecessary
long-term strategies toremain economicallyThecombination ofanadvanced technological society
with avigorous ,creative andadaptive manufacturing
basewhich liesatthecoreof theEuropean Community 's
economic well-being and underpins itspolitical
stability ,canbring about better distribution ,better
communications ,greater personal choices andshould
ultimately guarantee better health andanimproved
quality oflife.
Under thisProgramme thedual approach ofhigh
environmental standards combined with positive
incentives toeven better performance should be
applied inacoordinated manner tothedifferent points
intheresearch -process -production -marketing -use-
disposal chain where industry ,andindustrial products ,
may impact upon theCommunity 'senvironmental
resource base .Forsuccessful translation ofthissequence
intoasustainable one,theenvironment hastobepart
ofeducation andvocational training foralltheactors
involved inthechain ,with special emphasis on
researchers andproduction engineers .Θ
n»(SEC(91)629),1 9.4.1 991

Anewsense ofdirection andthrust willbegiven tothe Figures 2aanc/2boverleaf indicate howmanufacturing
environment /industrial policy interface bytheinstitution industrywill berequiredorencouragedbytwodifferent ,
ofacomprehensive ,integrated "package "ofmeasures ,butcomplementary forces tomove towards
including existing provisions ,comprising thefollowing environmentally-responsible production processes and
elements : products . elements : products .
Figure 2ashows howvarious legislatively-based rules ,
* astrengthening ofthedialogue with industry ; standardsand procedures willbeapplied tothedifferent
stages oftheauthorisation -production -appraisal
*improvement ofphysical andstrategic planning chain soastocreate aself-perpetuating inducement to
including assessment ofenvironmental progressively apply ever-improving standards ,
implications ofplans andprogrammes ; Figure 2bhasconsumer awareness andchoice asits* astrengthening ofthedialogue with industry ;
implications ofplans andprogrammes ; Figure 2bhasconsumer awareness andchoice asits
central strength .Thecycle ismarket-driven ,self-
*improved management andcontrol ofproduction regulatory andself-perpetuating .Asindicated itwould
processes including asystem oflicensing linked serve notonly theprivate consumer butalsoother
tointegrated pollution prevention andcontrol ,companies wishing togainorenhance theirowneco-
environmenta !auditing ,effective environment rating .Thepotentialeffectivenessofthismodeldepends
valuation andaccounting ,useof bestavailable ontheavailabilityofchoiceandofobjectiveappraisal
technology ,and introduction ofmarket-based andinformation ,
pricing systems forconsumption and useof
natural resources .Insetting standards and Inconsideringthis package toensure thesustainability
conditions ,dueaccountwill betaken ofthelead-oftheindustrial sector andtoprovide forcontinued
time needed tofacilitate investment decisions ; industrial andeconomicgrowth ,special consideration time needed tofacilitate investment decisions ; industrial andeconomicgrowth ,special consideration
will begiven totheposition ofsmall andmedium
*higher ,more reliable product standards designed enterprises and thematter ofinternational
toensure thattheenvironmental impact ofproducts competitiveness .
during theirwhole lifecycle isminimised using ,
interalia,aCommunity-wideecological labelling Small andMedium Enterprises
system .; Inrelation tosmall andmedium enterprises
discrimination inrespect ofthemeasures outlined may
*encouragement ofvoluntary agreements andother notbeeither desirable ornecessary onthegrounds ,
forms ofself-regulation ; inter alia,thatSystem .;
forms ofself-regulation ;
pollution isnotthe prerogative oflarge installations ;
inaggregate ,small plants alsocause theirshare of
pollution andwaste ;
many survive onthedemand created bylarge
firms which will beobliged totighten uptheir
processes andmeet theoverall criteria ofthe
ecological labelling system ;
incompetition forinvestment finances ,small and
medium enterprises cannot afford tobeata
disadvantage vis-S-vistheir larger rivals .*effective waste management ideally should
commence with thecontrol ofproduction
processes ;inthisrespect itistobeexpected that
thepackage ofmeasures indicated forthe
production aspects willhave asignificant impact
onbothquantities andtypes ofwaste generated ;
other elements inthestrategy willinclude
reclamation ofwaste products byoriginal
producers orimporters (which would alsoimprove
waste handling ),continued research intorecycling
andreuse technology ,withpilotprojects inthese
areas ;andnorms forindustrial waste incinerators
andiandfill sitestodeal withthreats posed byfinal
disposal ofwastes ; disposal ofwastes ; Neverthelessasfaraspossibleaspecialeffortwillneed
tobemade toavoid disproportionately burdensome
*finally ,itisessential thatthegeneral public and administrative ,financial orlegal constraints which
thesocial Dartners areenabled tobecome more might impede thecreationor development ofSMEs .As thesocial partners areenabled tobecome more might impedetne creationor development oroMts .AS
actively involved inthedevelopment andpractical farasongoing control measures areconcerned ,for
implementation ofpolicy :thismeans that example ,itmaybepossible inappropriate instancesto
individuals begiven alltherelevant information provide forsome variations inthetimeframes for
necessary toenable themtoexercise informed adaptation orimplementation (subjectto normal Treaty
choices asconsumers ;theymustalsohaveaccess requirements ).Inother cases ,itmaybepossible to
toenvironmental lyrelevant data(e.g.inventory ofprovide direct practical assistance ,including provision
émissions ,environmental audits ,disclosure ofofexpert services ,training programmes ,etc.However ,
environmental issues intheaccounts ofenterprises )itshould beborne inmindthattheirverysizegenerally
toenable them tomonitor theperformance ofgivesSMEsagreaterlevelofflexibilityandadaptability ;
industryand regulations alike . adherence tothestateoftheartwould ,inmany cases ,
givethem anedge inhighly competitive markets or,
indeed ,open newmarkets .29

FIGURE 2a:Regulatory Process toPromote Environmentally -friendly andCompetitive Industry
Operating Conditions
(ind .BAT )
Emissions Limits
Tradeable PermitsPublic Authorities
General Public
(consultations )/Public Authorities
General Public^ <EIA>íLOCATIONRENEWABLE
OPERATING
LICENCEStructural Planning
Physical Planning
PRODUCTION
PROCESSESPERFORMANCE
APPRAISAL
Integrated Pollution Control
Inventory ofemissions ,
discharges andwastesEnv .Audit
Inventory ofemissions
discharges andwastes
Tradeable PermitsPRODUCTS
Product Standards
Ecological Labelling
PackagingManagemem
Investors
Financiers ,Insurers L
|>^Public Authorities «General /
Public /Management
Public Authorities
Standards -
Institutes
Consumers
J*vv*,n/•'VKT-T
FIGURE 2b:The Potential ofConsumer Power toPromote Ecologically-Sound Manufacturing
Processes and Products
Environmental
AuditProduction
Process
ProductEcological
Label
c
O
c43
OTE
•§2
©©trceConsumer Awareness
and Cholce
Inventory ofemissions ,
discharges
and wastesCompany Image
Market Share
Liability Rating
Tu»
Public Listing of
"Clean "/"Dirty"
Companiesi:
L
Θ

International Competitiveness
Onthequestion ofinternational competitiveness ,the
perceived conflict between environmental protection
andeconomic competitiveness stems from anarrow
view ofthesources ofprosperity andastatic view of
competition .Rather than reduce competitive
advantage ,stringent environmental requirements can
actually enhance itbytriggering upgrading and
innovation .Those countries which have the most
rigorous requirements mostly lead inexports ofthe
affected products andtechnologies .With particular
reference totheissue ofglobal competitiveness ,the
decision byJapan 'sMinistry ofInternational Trade and
Industry (MITI )tolaunch anaction programme forthe
21stCentury entitled 'The new Earth 21"requires a
firmresponse from theCommunity ifourcompetitive
position intheglobal market-place istobemaintained .Turning environmental concern into competitive
advantage isoneoftheobjectives of'Towards
Sustainability ".Byaiming atreduction andelimination
ofpollution andatprevention ,recycling andreuse of
waste rather thanjustabatement orclean-up andby
creating abroader mixof instruments ,including market
incentives ,thereby avoiding constraints onthe
technologies used toachieve higher standards ,
environment policy can stimulate investment ,
innovation andcompetitiveness rather thanstiflethem .
Inmid-1992 the Commission will submit a
comprehensive Communication totheCouncil of
Ministers onindustrial competitiveness andprotection
oftheenvironment which willfurther develop this
theme andpropose areas foraction intheindustrial
field .
4.2TheEnergy Sector
there isabreakthrough inthedevelopment and
penetration ofalternative energy technologies such as
renewables (biomass ,solar ,wind etc.).The high
efficiency scenario willrequire adramatic change in
attitudes toenergy useandwould force industrialized
countries toachieve even higher efficiency gains than
during theperiod 1975-85 .The Community 'senergy sector continues tobe
confronted with local and regional environmental
problems such asacidification .Inaddition ,concerns
about theglobal aspects ofenergy policy andtheir
effects ontheenvironment aregrowing inimportance .
Along-term strategy must bedevised which ensures
thatsolutions forone problem donotexacerbate
another .Theglobal challenge ofthefuture willbeto
ensure thateconomic growth ,efficient and secure
energy suppl iesandaclean environment arecompatible
objectives .Energy policy ,therefore ,will beakey
factor intheachievement ofsustainable development .Global energy andenvironmental improvements can
only berealized ifmajor improvements arealso
achieved inthedeveloping countries andinCentral
andEastern Europe .Acritical issue inthiscontext isthe
need totransfer finance ,technology andknow-how to
those countries tohelpthem tocontrol theevolution in
theirenergy demand whilst safeguarding their rightto
sustainable development .The Community has
already indicated itscommitment inthese areas in
theconclusions ofthe Council of Ministers
(Environment )of12December 1991 relating tothe
United Nations' Conference onEnvironment and
Development TheEuropean Energy Charter which
expresses interdependence intheenergy field and
awareness oftheshared responsibility forsupply and
fortheenvironment ,canalso make animportant
contribution .The countries ofCentral and Eastern
Europe would obtain theassistance they need for
economic recovery andforobtaining energy supplies
under conditions allowing acleaner environment ,a
better balance between different energy sources ,and
amore efficient useofenergy .
OntheEClevel ,theCommission in1990 presented
fourscenarios identifying therange ofinfluences at
workwhich could affect thedirectionofenergy demand
andsupply over thelonger term® .Ofthese four
scenarios ,thetwomost contrasting paths along which
ourenergy future may develop areofimmediate
importance forstrategy formulation :aconventional
wisdom scenario andahigh prices scenario .TheseRecent UNprojections relating totheworld population
arethatitwill risefrom 5billion people in1990
towards 10billion in2050 .Consequential energy
projections indicate thatenergy demand willincrease
from around 9billion tonsofoilequivalent (toe)in
1990 towards 20billion toe in2050 under a
conventional wisdom scenario ortowards 13billion
toeunder ahigh energy efficiency scenario .
Eventhough there willberegional adjustments ofthe
energy shares' 1’,these developments willstillhave a
quite drastic impact ontheenvironment atlarge .In
bothenergy scenarios theprojected useofcoalwill
result inconsiderably increased emissions of
greenhouse gases ,inparticular C02.Thelower level
(13billion toe)would result ina60% increase ofC02
emissions onglobal level .
Theprojected future energy growth based onthe
conventional wisdom scenario would create
considerable stresses forsecurity ofenergy supply .
These would beparticularly severe inthose developing
countries which donothave indigenous energy
resourcesand theaimwould probably beunachievable
uniess there isadifferent approach tonuclear power ,
togreater useofwaste related energy sources orunless
31
mThedeveloping countries willaccount for46%,thecurrently developed world 16%(41.6%in1990)and
theCentral anclEastern European countries 11%(24%in1990).
®Energy inEurope ,Energy foranewcentury :theEuropean perspective ,July1990

scenarios donotyettakeaccount oftheunification of
Germany .Foranumber ofreasons induding this,the
scenarios areatpresent being updated .Theresults of
thisrevision willbeavailable bymid-1992 .Themes andtheTargets ofthisProgramme .Therefore
even greater efforts arerequired toreduce emissions to
sustainable levels .Inthecasefo NOx ,some additional
reductions canberealized inthepower generating
sector andmanufacturing industry ;considerably greater
reductions could beachieved inthetransport sector ,
mainly through structural andbehavioural changes .
ForS02thegreatest scope forreductions onpresent
levels liesinthepower generating sector (where
certain regulatory measures arealready inforce ,but
notyetfullyimplemented )and inthemanufacturing
industry sector .Explanation ofScenarios andtheir implications
Scenario 1,otherwise referred toasthe"business
asusual *scenario with loweconomic growth and
nonew major environmental andenergy policy
initiatives .
Scenario 4,otherwise referred toasthe"high
prices "scenario with same growth asunder
scenario 1,butwith rapid increase ofenergy
efficiency ,asignificant increase innuclear power ,
gas-fired plants replacing coal-fired units plusan
increased energy price toconsumers through for
example ,anenergy /carbon tax.Theachievement ofpractical results inthefield of
energy requires astrategic perspective wel Ibeyond the
year2000 .Thekeyelements ofanystrategy forthe
short -to-medium term would beanimprovement in
energy efficiency andthedevelopment ofstrategic
technology programmes ,including R&D,moving
towards alesscarbon-intensive energy structure
including ,inparticular ,renewable energy options .
These elements have already been thesubject ofa
Communication from theCommission totheCouncil
inNovember 1989 "Environment andEnergy "01.The
Commission inanother Communication "ACommunity
Strategy tolimit Carbon Dioxide emission andto
improve energy efficiency"® hasmade anumber of
proposals which have received thegeneral support of
theCouncil .Among themeasures envisaged within an
overall strategy aretheintroduction ofeconomic
instruments ,which would require thattherealcosts of
consuming energy are passed ontotheuser
(forexample through aCO/energy tax);better
information ,education andtraining forend-users ;
agreements with industry relating tocodes ofconduct
(atEClevel ,codes ofconduct have already been
concluded intheelectricity ,coal ,oilandnatural gas
sectors )and improvement ofefficiency ;energy
efficiency standards forallkind ofproducts and
appliances ,energy saving programmes andbuilding
insulation standards (inconformity with thealready
adopted SAVE andPACE Programmes );further study
ontheenvironmental aspects ofnuclear energy;new
energy technologies andthepromotion thereof (onthe
basis oftheTHERMIE andJOULE Programmes )and
further promotion ofuseofrenewable energy (ashas
been proposed intheALTENER Programme ).Onthebasis ofthese scenarios ,theestimates for
total EC-12 energy consumption (inmillion toe)
andemissions intotheair(inmillion tons )in2010
would be;
TABLE 1
Consumption CO, SO,NOx
1148.33 2738 1223 10.38 1990
2010
Scenario 1
(conv.wisd .)1376.59 314325 6.567.85
2010
Scenario 4
(high prices )975.59 2098.37 4.324.35
Onthebases ofthepredictions offered ,only
Scenario 4orasimilaronewould meet theagreed
COjstabilization target for2000 byreference to
1990levels andcould achieve further reductions
oftheorder of25% bytheyear 2010onthebasis
ofpresent day knowledge andanticipated
technology ,and considerable structural and
behavioural changes .
SO,emissions havebeen indedinesineethebeginni ng
oftheeighties andwillcontinue tofallsubstantially in
thefuture asaconsequence ofCommunity andnational
environmental legislation ,energy efficiency
improvements and theuseofcleaner fuels .NOx
emissions willalsobereduced uptotheyear 2010 ,
though ,lessdrastically thanS02emissions .However ,
even these reduced SO.,andNOx emissions are
expected tocause environmental problems inmany
areas oftheCommunity onnational ,regional and
urban levels byexceeding critical acidification loads
asshown under paragraph 5.2oftheChapter ontheThetaskforthefuture istovigorously implement the
programmes mentioned and,where necessary ,to
review ,intensify andenlarge them .
Table 2setsoutthemeasures necessary uptotheyear
2000 ,theinstruments needed tobedeveloped asfrom
1993,andtheactors involved ,inorder tomake thefirst
important steps totheachievement ofasustainable
energy policy .
32
01COM (89)369of8February 1990
® SEC (91)1744final of14October 1991 .

Table 2:ENERGY
MEASURES UPTO2000 INSTRUMENTS TIME-FRAME ACTORS
awareness building andincen ¬
tives aimed atsustainable en¬
ergy use and behavioural
changes*information to,education andtraining ofend-users 1993onwards MS+EC+public +
Energy sector
MS +Ind+EC
Energy sector +MS+
Ind+EC
EC +MS
MS +EC*agreements with industry onefficiency
'codes ofconduct tobeadopted bytheactors concernedongoing
ongoing
*économie and fiscal instruments
*removal ofrestrictive rulesongoing
1993 onwards
energy efficiency programmes Implementation ofPACE ,SAVE andnational efficiency
Programmes ,including :
*least costplanning
*energy efficiency standards forappliances ,products
and vehicles
*efficiency standards forenergy technology
'buildings insulation standards
*minimization ofmethane leakages from natural gas
distnbution systemsongoing EC+MS +Ind +
Energy sector
Ind+Energy sector
EC+MS -rind +
Transport sector
EC+Ind
MS +Ind+EC
MS+Energy sector
technology programmes Implementation ofTHERMIE andJOULE Programmes ,
including :
*RAD ofnewenergy technologies andpromotion and
use thereof
*RSD onrenewables (i.e.biomass )EC+MS +Ind+
Energy sectorongoing
Kj
id
id promoticnal programme ALTENER :promotion ofrenewable energy
*Pilot projects andstandardisation1993onwards
nuclear safety programmes EC+MS+Energy
sectorStudy onsafety andwaste aspects ofnuclear energy ongoing
4.3TheTransportSector
symptomatic forthetransport market andhasalready
ledinmany areas toaformofrationing bycongestion .
Present trends inroad andairtransport areallleading
towards even greater inefficiency ,congestion ,
pollution ,wastage oftimeandvalue ,damage tohealth ,
danger tolifeandgeneral economic loss.Physical
constraints -mainly environmental constraints -are
such thatitwillnotbepossible inthefuture asitwas
inthepast,tobasetransport policy onthedemand side
oftheequation .Transport isvitaltobothoureconomic andsocial well ¬
being .Itisessential totheproduction anddistribution
ofgoods andservices ,aswell astotrade andregional
development .Transport hasmade amajor contribution
toeconomic growth intheCommunity .Ithasenabled
theachievement ofimportant economies ofscale in
production andledtoincreased competition .Inthe
Community ,thetransport sector accounts for
approximately 10%oftheCross Domestic Product
andrepresents 9%ofemployment (these figures include
transport forown account ofboth goods andpersons
aswell astheproduction oftransport means and
creation and maintenance ofinfrastructure ).Since
1970theoverall annual growth ininland transport has
averaged 3,1% forpassengers and2,3% forgoods .
Both inabsolute andrelative terms theincrease inroad
transport hasbeen much higher than fortheother
inland transport modes .Since 1980theincrease inair
passenger transport hasaveraged 6,2% perannum .Transport isnever environmentally neutral ,since all
modes oftransport have varying degrees ofimpact on
theenvironment .Emissions oftransport -primarily
road andairtraffic -represent averyhigh share ofthe
overall emissions :about 90% ofalllead emissions ,
about 50% ofallNOx emissions andabout 30% ofall
VOC emissions .Inurban areas ,traffic causes almost
100%oftheCOemissions ,60% ofHCandNOx
emissions ,50% ofparticulate emissions ,andabout
10%ofS02emissions .Transport emits 22%ofallC03
emissions .Ofthis,80% emissions arise from road
transport andmore than55%fortheprivate caralone .
Furthermore ,thetransport sector -inparticular ,road
andairtraffic -isreckoned tobethebiggest contributer
totheproblem ofnoise .Despite thecrucial importanceof thesector ,asituation
hasbeen allowed toevolve inmany parts ofthe
Community ,especially inthelargerurban andindustrial
areas andalong many oftheprincipal traffic arteries ,
wherein imbalances interms ofdisproportionate
mobility byroad ,excessive traffic andcongestion ,
uncoordinated infrastructure planning aswell as
inefficient useofexisting transport capacity are33

Recent EClegislation onexhaust emissions ofcarsand
trucks willresult inasubstantial reduction ofpollution
byindividual vehicles .However because ofthe
projected increases inthevolume ofcarsused ,the
mileages driven and increases ofroad freight traffic ,
thetransport sector 'sshare inoverall emissions will
increase from 22to24%ofC02,from 4to12%ofS02
andfrom 58to59%ofNOx andthereby willoffset any
potential reductions attributable totheintroduction of
thenew emission standards .improvement ofcompetitive position of
environment -friendly modes ,such asrailways ,
inland andseanavigation andcombined transport ;
development ofurban transport ,which gives
priority tocollective transport andtoadequate
link-up between thedifferent stages ofjourneys ;
continued technical improvement ofvehicles and
fuels ;
Transport demand andtraffic areexpected toincrease
significantlywith thecompletion ofthe Internal Market ,
thepolitical andeconomic developments inCentral
and Eastern Europe and thedevelopment ofthe
European Economic Area .The efficacity and
sustainability oftransport policy itself inthefuture will
beindirect proportion tothequality ofthe relationship
between transport andtheenvironment .Itwill be
essential topursue astrategy aimed atreducing -orat
very leastcontaining -theoverall impact oftransport
ontheenvironment .*promotion ofmore environmentally rational use
oftheprivate car,andchanges indriving rulesand
habits ,including speed limits .
Implementation will beamatter foralllevels of
admi nistration andsociety ,rightdown totheindividual
carowner -atrue sharing ofresponsibilities .But
effective results will ultimately depend onthe
complementarity ofmeasures andefforts .Forinstance ,
private driving habits arelargely afunction ofeffective
choice which isdependent upon theavailability of
alternative modes oftransport ,thequality of
infrastructure ,thecostofparking etc.Information and
education programmes alone willachieve relatively
little iftheeffective choice isrestricted .Likewise ,
professional road hauliers willhave littleoption butto
continue tousetheroadsystem solong asthelocation ,
delivery times andcondition ofcargoes cannot be
guaranteed byother modes oftransport .Inthis
connection ,theraiIway system willonlyplayafull rC>le
intheservicing oftheInternal Market ,ifasatisfactorily
coherent Community-wide network canbecreated
between thevarious national orsemi-state railway
companies andifthere issome form ofintegrated
logging andtracking system where goods ,materials
andwaste cargoes areconcerned .Optimisation of
transport modes andinfrastructure facilities ,networks
andinvestments canserve private ,corporate ,national
economic ,Internal Market and environmental
protection interests side-by-side.Inparticular itwil Ibenecessary toreduce operational
pollution ,limit theimpact ofinfrastructural
development onland use"1,reduce traffic and
congestion (especially inurban areas )andprevent or
reduce risks inherent inthetransport ofdangerous
goods and wastes .The Commission hasrecently
published aCommunication ontransport andthe
environment® _ ,which ,inter alia,
proposes astrategy for"sustainable mobility"involving
acombination of:environment® _
*improved land-use /economic development
planning atlocal ,regional ,national andtrans ¬
national levels ,toreduce theneed formobility
andallow forthedevelopment ofalternatives to
road transport ;
*improved coordination intheplanning ofand
investment intransport infrastructure networks
andfacilities ;incorporation oftherealcosts of
both infrastructure andenvironment ininvestment
policies and decisions and inuser costs and
charges ;Table 3givesan indication ofmeasures andinstruments
needed ,theactors involved ondifferent levels but
acting inpartnership ,andthetime-frame envisaged .
0
Excluding thesurface areaofintersections ,junctions andcarparks ,theroadnetwork takes upabout 3,1%oftheCommunity 'stotal
area;excluding landusedforrailway stations andmarshalling yards ,therailway network takes up0,1%ofland.®COM (92)46finalof20February 1992 :Green paper ontheimpact ofTranportontheEnvironment ,aCommunity strategy for
•Sustainable mobility -

Table 3:TRANSPORT
MEASURES UPTO2000 INSTRUMENTS TIME-FRAME ACTORS
-Land-use planning
-Infrastructure investments urban transport ,
trans-shipment facilities ,railenhancement ,
goods handling ,inland water ways /seatraffic
-Infrastructure charging(a)Infra ¬
structuresEIA 2000 MS/LAs
MS/LAs + Structural Funds 1995
EC
Road taxes andcSfferent forms
ofFloadpricing1993 MS +EC
ю id
Progressive technical improvement ofvehicles :
-exhaust and noise emissions ,fuel
consumption ,performance ,finaldisposalb)Fuels &
vehicles-R4D
-régulation
-vehicle testing (contr.techn )
-Recyding ofparts
-Fiscal incentivesbefore “95
2000
before 08
2000Industry *EC
EC+MS
MS*EC
Industry
MS*EC 2000
Composition 4consumption offuels :
-alternative fuels ,cleaner fuels
-complete move tounleaded petrol by2000-R4D
-Fiscal incentives
-régulationbefore 05 Industry *EC
MS*EC
EC*MS2000
1995
-driver information 4education onamore
rational use ofthecar(c)User
Behaviour-campaigns inme<Sa ,speed
limits and other physical
constraintsongoing LAs/MS +EC+
NGOs
-improved public /collective transport -investments ,land-use
plans2000 LAs'MS +EC
Transp .
authorities
LAs*MS
Public
Tolloperating
Companies ,
Public
EC+MS+
Industry-discouragement ofroad traffic incities
-development oféconomie and fiscal
incentives-charges ,highparking fees ,
-carpooling e.g. positive
discrimination (lower tolls)
ofcarpoolersbefore *95
id
-development ofinter active communication
infrastructures-logging and tracking
systems ,electronic home ,
video conferencesongoing
4.4TheAgriculture Sector
ofliving fortheagricultural Community .However ,
while theachievement ofthese objectives hasbeen
greatly promoted bytheCAP 'Sprice support
mechanisms ,thesame instruments arenow seen tobe
having some lesspositive side-effects .Agriculture ,together withforestry ,occupies more than
80%oftheterritory oftheCommunity .Traditionally ,
thefarmer istheguardian ofthesoiIandthecountryside .
Bycareful husbandry ,including integrated crop and
livestock farming andwaste management ,farmlands
arepassed insound condition from onegeneration to
thenext Agriculture hasshaped andindeed continues
toshape theEuropean countryside andhassetmuch of
thefoundation ofEuropean culture .Oneofthese effects hasbeen anover-emphasis in
some areas onproduction levels with consequential
over-intensification .This ,inturn ,isleading to
overexploitation and degradation ofthenatural
resources onwhich agriculture itselfultimately depends :
soil,water andair.Incrop production ,systematic use
ofplant protection products hasledtoarelative
resistance inparasites increasing thefrequency and
thecostofsubsequenttreatments andcausing additional
soilandwater pollution problems .Incertain areas of
theCommunity ,large quantities offertile topsoilare
lostevery yearbecause oferosion duetoinappropriate
management oftheland .Inlivestock farming ,animal
diseases have become more difficult todeal with ,as
genetic uniformity and concentration inspace of
holdings have increased .Animal wastes create more
andmore problemsofwater andsoilpollution .Ground
clearance anddrainage arecausing depletion of
wetlands andreducing biodiversity .Excessive useof
nitrogenous and phosphate fertilisers causesJust asinthecase ofmanufacturing industry and
transport ,however ,theagricultural sector andfarming
practices have undergone significant modernisation
andchange during thiscentury ,andmore particularly
overthelastforty years .Among thefactors which have
brought change arethedriftofrural populations to
cities andtowns ,increased mechanisation ,improved
transport ,improvements inseedquality,cropprotection
andanimal strains ,international trade andcompetition
infood products andfeed-stuffs .
Against thisbackground ,theCommunity 'sCommon
Agricultural Policy (CAP )hasbeen developed and
adapted soastofulfill theobjectives oftheTreaty of
assuring theavailability offoodsupplies atreasonable
prices ,thestabilisation ofmarkets andafairstandard 35

eutrophication insurface waters inmany regionsof the
Community ;theresulting algal blooms disturb the
oxygen levels ofthewater withdramatic consequences
forfish,feeding matter andtheecosystem ingeneral as
well astheuseofthewater fordrinking andrecreation
purposes .Even incases where specific regional or
horizontal measures areintroduced forsoilprotection
their success isoften compromised under thepressure
ofother market orstructural measures .Forexample ,
efforts toprotea heatherland andcombat erosion in
northern countries canfailbecause ofovergrazing as
aresult oftheheadage payment schemes ,particularly
inthesheep seaor .Forestry
Inmany regions oftheCommunity ,forests arenotonly
adeterminant faaor fortheenvironment ,withdifferent
ecological andsocial funaions ,butarealso amatter
ofconsiderable economic importance .TheCommunity
asawhole isthesecond greatest consumer oftimber
intheworld .Ofatotal annual consumption ofsome
200 million mJ,Community production yields
approximately 100million mJi.e.itisonly 50% self-
sufficient atpresent
Notwithstanding thissituation ,theCommunity forests
have longbeen negleaed .Today ,nearly 40%ofthe
total issuffering various degrees ofill-health caused
mainly byacidification ;IIASA studies' 31indicate EC
(excluding Spain )harvest-loss attributable toair
poilution oftheorder of30milIionm3perannum ,with
anestimated value ofsome 10billion ECU .Inaddition ,
about 1%oftotalforest areaisdestroyed each yearby
forest fires ,thevast bulk ofthisbeing inthe
Mediterranean Region .
Against thisbackground theCommunity ,in1989 ,
adopted aforestry policy *41designed to:
protea theforest heritage against threat from
acidification andfire;
improve theproduaivity offorests ;
develop forest and forest-related activities ,
especially inrural areas ;
promote afforestation onagricultural land .Apart from theenvironmental degradation incurred ,
thepresent system generates surplusses athighcosts to
theCommunity budget without improvingthe income
situation oftheEuropean farmers .Given allofthese
circumstances ,itisnotonlyenvironmentally desirable ,
butitalso makes sound agricultural andeconomic
sense toseek tostrike amore sustainable balance
between agricultural aaivity andthenatural resources
oftheenvironment .
This appreciation isclearly reflected inrecent
deliberations onthereform oftheCommon Agricultural
Policy which ,interalia ,have indicated that"producing
more"cannot beanylonger considered asthecentral
point ofCommunity policy .TheCommission 's1991
Refleaion Paper onthedevelopment andfuture ofthe
CAP *11recognised theneed toencourage extensifi cation
withtheobjea ofnotonlyreducing surplus produaion
butalso ofcontributing toanenvironmentally
sustainable form ofagricultural produaion andfood
quality andformalising thedualroleoffarmersasfood
producers andguardians ofthecountryside .The
Commission 'ssubsequent proposals' 21include anagri-
environmenta !aaion programme which encompasses
several types offinancial assistance designed to
encourage farms tooperate their landholding inan
environmentaly-friendly way .However ,overtheperiod covered bythisProgramme ,
itwillbenecessary tolook beyond theconcerns and
aaions referred toabove and todraw acloser link
between theCommunity 'sinternal timber produaion
andconsumption patterns anditsmoral andpolitical
obligations towork towards thesolution ofglobal
concerns about deforestation .
Long term objeaives ,medium term targets and
measures needed inrelation toagriculture andforestry
aregiven inTable 4.
COM (91)100finaloMFebruary 1991“ COM (91)258finalof11July1991
,31IIASA :International Institute forApplied Systems Analysis ,Austria :Executive Report 17,February 1991 .
141 COM (88)255;C.|.N°LI65,15.6.1 98936

T»Ne4:AGRICULTURE ANDFORESTRY
TARGETS UPTO2000 OBJECTIVES TIME-FRAME ACTORS ACTIONS
Standstill orreduction ofnitrate
levelsingroundwaters .
Reduced incidence ofsurface
waterswithanitratecontent
exceeding 50mg/1,orgivingrise
toeutrophication oflakesandseas.Strictapplication ofthenitratesdirective Maintenance ofthebasic
naturalprocessesindispen ¬
sableforasustainable
agricultural sectornotablyby
conservation ofwater,soil,
andgeneticresources1994=> MS+AGR
Settingofregionalemissionstandardsfor
newlifeslockanils(NHj)andsilos(silage)Ongoing MS+LAs
Réductionprogramme forphosphateuse.1995 EC+MS
Stabilisation orincreaseoforganic
materiallevelsinthesoilAllocation ofpremiums andother
compensating paymentstobesubjectto
fullcompliance withenvironmental
legislation1995=» EC
MS+LAs+
AGR
Significant reductionofpesticide
useperunitoflandunder
production andconversion of
farmerstomethodsofintegrated
pestcontrol,atleastinallareasof
importance fornature
conservation .-Registration ofsalesanduseof
pesticides
-Comrolonsaleanduseofpesticides
-Promotion of“Integrated Control"(in
particular trainingactivities )and
promotionofbio-agricultureOngoing EC+A/S+AGR Decrease intheinputof
chemicals tothepointthat
noneoftheseprocessesbe
affected.1995 EC+A/S+AGR
EC+MS+AGR 1992=»
Equilibrium betweeninput
ofnutrientsandtheabsorp¬
tioncapacityofsoilsand
plants.
A/S+EC Programmes foragriculture/snvironrnem
zoneswithpremiums co-financedby
FEOGA1992 15%ofagricultural areaunder
management contractsRuralenvironment ma¬
nagement permitting the
maintenance ofbiodiversity
andnaturalhabitatsand
minimising naturalrisks(e-g.
terosion.aval anches)andfiresOngoing MS Protection ofallendangered domestic
animalraces
1995 MS+EC Re-evaluauon oflicenseconditions for
irrigation andofslateaidsfordrainage
schemesManagement plansforallrural
areasindanger
EC+MS+LAs 1992=» Trainingoffarmers ,promotion of
exchange visitsbetweenregionswith
comparable environment management
situations
EC+MS+LAs +
foresl-owmrsOngoing Newafforestation andregeneration of
existingforest,favouring themost
adequatemeansfortheenvironment (slow
growingtrees,mixedafforestation );Increaseofforestplantation ,
includingonagricultural land;Optimisation offorestarea
astofulfillalltheirfunctions
id id Furtheractionagainstforest-fires Improvedprotection (healthand
forest-fixes )
37

4.5TheTourism Sector
Tourism isanimportant element inthesocial and
economic lifeoftheCommunity .Itreflects thelegitimate
aspirations oftheindividual toenjoy newplaces and
absorb different cultures aswell astobenefit from
activities orrelaxation away from thenormal home or
work setting .Itisalsoanimportant economic assetto
many regions andcities oftheCommunity andhasa
special contribution tomake totheeconomic and
social cohesion oftheperipheral regions .Tourism
represents agood example ofthefundamental link
which exists between economic development and
environment ,with alltheattendant benefits ,tensions
andpotential conflicts .Ifwellplanned andmanaged ,
tourism ,regional development andenvironment
protection cangohand inhand .Respect fornature and
theenvironment ,particularly incoastal zones and
mountain areas ,canmake tourism bothprofitable and
long-lasting .These developments willhave major implications for
theenvironment ,imposing tremendous pressures on
habitats ,transport facilities ,coastal andmountain
land ,energy andwater resources ,andwaste water
treatment facilities ,particularly atperiods ofpeak
demand .Thecoastal zones especially willfacesevere
problems .
Overall environmental targets and longer term
objectives directly related totourism (other than
otherwise required noise ,water andairquality
standards )aredifficult todefine since tourism can
have both positive and negative effects onthe
environment andisverydependent ontheindividual
consumer choice .The impact oftourism depends very
much onthetypeoftourism ,thebehaviour oftourists
andthequality ofthetourist services .Most ofthe
pressures ontheenvironment stem from themass
tourism incoastal andmountain areas ,which islikely
toincrease considerably overthenextdecades .Itwill
benecessary therefore todevelop national andregional
integrated management plans forcoastal andmountain
areas .Within the EC,tourism represents 5.5% ofGDP ,
around 5%ofexport earnings and6%oftotal jobs,
including more than 7million full-time jobs .The
development ofthetourist sector isratherdiverse inthe
Community .Over thelastdecade tourist activity has
gone upbyanaverage of14%oftotalnights spent .The
increase ismuch more than average inthesouthern
partoftheEC.IntheAlpine regions tourism hasrisen
sharply toabout 50million people every year .As
income levels and leisure time increase over thenext
decade ,substantial growth isanticipated .Thiswill
have itseffect over thewhole ofEurope with an
emphasis oncoastal andmountain zones ,with the
Mediterranean region taking alarge share .Income
increases areexpected totrigger more second hoiidays ,
which may beshort butareexpected totakeplace in
environmentally highquality surroundings .Elements inthese strategies which directly relate tothe
interaction oftourism and environment would be
controls onland use,thesetting ofstrict rules onnew
constructions ,and fight against illegal housing ,
management ofprivate traffic flows toandinthe
tourist areas ,diversification oftourism ,strict
implementation andenforcement ofenvironmental
standards onnoise ,drinking water ,bathing water ,
waste water andairemissions (including emissions in
thehinterland ofthetourist areas ),creation ofbuffer
zones around sensitive areas such aswetlands and
dunes ,better dispersion ofsummer holidays ,awareness
building andeducation oflocal people andtourists ,
andeducation and professional training ofpeople
involved inthemanagement oftheareas involved .The Mediterranean basin accounts for35% ofthe
international tourist trade and istheworld 'sleading
tourist area .According totheUNEP Blue Plan"1,the
number oftourists intheMediterranean region could
grow toasmany as380-760 million peryearin2025 ,
depending ontheeconomic growth rates .This
development would beinaddition topredicted
demographic changes inthearea .160million ofthese
tourists intheyear 2000 and260million intheyear
2025 would visit Mediterranean coastal areas ,as
compared to55million in1984 andaround 100
million in1990 .Estimates oftheWorld Tourism
Organisation confirm theprojections oftheBlue Plan .
Both indicate thatupto90% ofanyincrease could
accrue toCommunity Member States intheregion .
Such increases would require double theoccupation
ofspace bytheyear2000 alone ;thesolid waste and
waste water generated could more thantriple bythe
year 2025 .Therealisation ofsuch strategies willrelyprincipally
onmeasures tobetaken byregional andlocal
authorities ,andthetourism industry .ACommunity
Action Plan toAssist Tourism published bythe
Commission® includes anumber ofspecific measures
designed tolinkenvironmental protection andtourist
development e.g.
inventories oftourism resources intheMember
States ;
improved staggering ofholiday^seasonal spread
oftourism ;
practical guides forthetourist industry andpilot
projects inenvironmental tourism ;
development ofacode ofconduct fortourists ;
38
n>UNEP 'SMediterranean Action Plan
®COM (91)97finalof24April 1991

exchangesof information andexperience invisitor
management ;
environmental awards andprizes .economic resource ,requiring tobewell maintained
andprotected .Sustainable tourism ,based onrespect
fornature andtheenvironment canmake apositive
contribution totheprosperity notonly ofthetourist
industry assuch ,butalsoofthesurrounding regions
and towards theeconomic and social cohesion of
peripheral areas .Itisessential toplace future growth oftourism within
theframework ofsustainability .Ifwell planned and
controlled ,tourism ,regional development and
environment protection cangohand inhand .Recent
examples such asthealgal plague intheAdriatic Sea,
which cost anestimated 1,5billion ECUs inlost
revenue from tourism andfishing in1990 ,indicate
clearly thattheenvironment constitutesa veryimportantTable 5gives anoverview oftheelements ofastrategy
ontourism ,indicating which instruments need tobe
developed within what time-frame and bywhich
combination ofactors andtarget groups .
Table5:TOURISM
INSTRUMENTS TIME-FRAME ACTORS MEASURES UPTO2000 OBJECTIVES
1993onwards LAs *Bettermanagement of
masstourism
*National andregional
integrated management
plansforcoastaland
mountain areas-improvedcontrolonlanduse
-strictrulesfornewconstructions
-management oftrafficflowstoinandfrom
touristareas
-visitormanagement ;exchangeofexpertise
-pilotmodelsofsustainable tourism
-strictimplementation andenforcement of
environmental standards onnoise,drinking
water,bathingwater,wastewatertreatmentand
airemissions
-creationofbufferzonesaroundsensitiveareasTypeoftourism
LAs id
MS +LAs id
id 1992-1993
id id
MS+LAs+HC ongoing
MS +LAs 1993onwards
1993-1995 MS+LAs+
Tourist/nd.+EC
EC♦MS-development andpromotionofcodeofconduct
-mulü-media campaigns +conférences
-ECtransportpolicy+nationaltransportpolides•buildingenvironmental
awareness
•liberalisation ofairand
coachtransport -TGV-
network
•increaseofmarginalcosts
ofuseofprivatecarand
promotion ofalternative
transportmodes
•betterdispersion of
holidays
•diversification oftourism
(includingruralandcultural
tourism)Behaviour oftourists
id
1993onwards
EC+MS
MS+EC1993-economicincentivessuchasCOj/energytax
androadpricingandencouraged useofpublic
transport
-co-operation andexchangeofinformation1993onwards
before1998 MS+EC+
TouristInd.
LAs+MS+EC
LAs+MS+EC
LAs+MS+£C
LAs+MS+ECbefore1995•nationalplan+régionalplans
-EC-RegionalDevelopment Fund
-ECtourismactionplan
-ECtourismAdvisoryCommitteeid
id
id
Ind.+LAs 1993onwards -brochures
-professional training
-pilotprojects
.professional trainingandeducationexchangeof
bestpractice*promotion newformsof
tourismwhichcareforthe
environment
*careful sélection of
accommodation
•buildingofenvironmental
awareness ofpeople
involvedinmanagement of
touristareas
*buildingenvironmental
awareness oflocalpeople
andtouristservicesQualityoftourist
servicesid id
id id
MS+LAs+EC
+Indid
39

Summary
Itisappropriate toreiterate ,atthispoint,thatthe
designation ofcertainkeytargetsectorsisnotintended
toindicateanexoneration ofotheractorsorsectors-
ALLpublicandprivateenterprise iscalledupontotake
upadueshareoftheresponsibility forgettingthenew
strategyunderwayandputtingtheoverallprogramme
intoeffect.Thestrategicapproachtothem3intargetsectorsis
summarised inTableb.Thesucceeding chaptersofthis
documentsetoutdetailedobjectives ,targetsandtime-
framesinrespectofreductionsofenvironmental impact
andanexpandedrangeofinstruments designedto
bringaboutthenecessarychangesinbehaviour and
trends.
T»ble6:PROGRAMME FRAMEWORK FORSELECTED TARGET SECTORS
INDUSTRY ENERGY TRANSPORT AGRICULTURE TOURISM
Réduction InPollution Integrated Pollution
Control
•operating licenses
-emissioninventory
-env.audits
-env.charges
-Cleanandlowwaste
technology'CleanerCnrs&Fuels Ecologically sustainable
farming
-extensificaüon
-réduction ofcheinicai
inputs
-organicfarming
-consumer information
-econ&fiscalincentivesSusLTourtan ,Land-use,
Infrastructure
-diinkingwater
-baihingwaier
-wastemanagement
-sustainable mobilityS
£I
CM
-specifictargets forCOj,
SOrNOx
-econ&fiscalincentives
-safedisposaiofnuclear
waste-emission limitvalues
-économie fiscal
incentives
-vehicletesting
-réductionofévaporationTP
OA
RC
AT
LS
Reduced Waste/Better
WasteManagementDevelopment
Renewable SourcesRationalisation of
InfrastructureForestDevelopment of Protection ofCoastal
Zones&Natural,Man¬
madeorBuiltAmenities
-désertification
-culturalheniage
-forestfires
-naturetr?ilsR
K
S
O
-inventoryofwastes
-econ&fiscalincentives
-deposit/retumsystem
-highstandards for
disposai
-cavilliabilityR&Dandpromotion of:
-biomass,wind,wave,
solar,hydro,geothermal-networkplanning
-inter-modal choice
-bottlenecks
-communications-systematic planting
-fireprotection
-sustainable harvestingu
R
C
E
S
Ecologlcally -frlendly
Products
-eco-label
-productstandards
-consumer information
-uxdifferentialsRéduction inEnergy
Consumptlon
-econ&fiscalincentives
-cons.info&educ.
-SAVE,THERMIE ,JOULE
-regulatory instruments
•volunLagreementsImproved Driver
Behaviour
-info&éducation
-econ&fiscalincentives
-choiceofmodes
-trafficmanagementRuralDevelopment
-landmanagement
control
*ruraltourism
-inlandfishingBroader Consumer
Choice
-broader choiceof
options
-betlerinformation
-betlerseasonal spreadof
tourismE
H
Λ
V
I
O
U
R
N3.:Theinstruments indicatedabovearenotexclusivetothesectorsinwhichtheyappear,theyhavebeeninsertedinthesectorsinrespectofwhich
theyhavethemostobviouspotential *
40

Chapter 5:
TheThèmes andTargets oftheProgramme
!nthisChapter anumber ofthemes areaddressed .These arenotintended asanexhaustive listofissues tobe
tackled within theCommunity overtheperiod covered bytheProgramme .Rather ,theyrepresent matters of
particular seriousness which have aCommunity-wide dimension ,either because ofInternal Market ,cross ¬
boundary ,shared resource orcohesion implications andbecause theyhave acrucial bearing onenvironmental
quality andconditions inabout allregions oftheCommunity .
Under each ofthethemes ,longtermobjectives aregiven asanindication ofthesense ofdirection orthrust to
beapplied inthepursuit ofsustainable development .Given thepresent stateofknowledge andparticularly the
absence ofparameters forsustainability ,these objectives aregenerally expressed inqualitative asdistinct from
quantitative terms .
Asintermediate goals ,certain targets areindicated ,tobeachieved within specified time-frames uptotheyear
2000 .These donotconstitute legal commitments but,astheterm "target *implies ,performance levels or
achievements tobeaimed atnowintheinterests ofattaining asustainable development path .
Theactions indicated foreach theme represent anon-exhaustive listofmeasures tobetaken inorder torealize
targets setfortheperiod upto2000 .
Finally ,thetables indicated which sectors /actors areseen tobemost directly responsible fortheactions
described .Inmost cases aneffort ondifferent levels willbenecessary toexecute thesetofactions needed totackle
aproblem .Thisaspect isdealt with ingreater depth inChapter 8.
5.1Climate change
important firststeptowards dealing withtheproblem ,
anapproach followed bymost developed countries .
Recently theCommission presented totheCouncil of
Ministers aCommunication onastrategy onthe
reduction ofCOaemissions andontheimprovement of
energy efficiency ,including Community-wide carbon -
cum-energy taxes designed toachieve these ends® .While global incharacter ,theclimate change predicted
asaconsequence ofincreasing atmospheric
concentrations ofgreenhouses gases willalso pose
serious problems fortheCommunity itself (frequency
ofextreme meteorological events ,sealevel rise,heat
anddrought spells ,etc.).Carbon dioxide (C03),
chlorofluorcarbons (CFCs )nitrous oxide (NjO )and
methane (CH4)arethemain agents ofthegreenhouse
effect . TheCommunity hasalready settargets forthephasing
outofCFCs andhalons even ahead ofthose setoutin
theMontreal protocol . ThelevelofC02hasrisenmainly because oftheburning
offossil fuels (energy sector ,industry andtransport )
anddeforestation .Therises intheamounts ofCFCs are
dueentirely toindustrial production since there areno
natural sources .Methane gases mainly come from
agriculture (cattle andcertain crops ),energy (natural
gasleakages )andwaste sites .
In1990 acomprehensive report assessing thenature
andtheconsequences ofglobal warming waspublished
bytheInter-Governmental Panel onClimate Change
(IPCC )m.Init,Commissions areidentified asbeing the
main contributory factor tothegreen-house effect In
thisrespect ,theCommunity 'sdecision tostabilize
COjemissions at1990levels bytheyear2000 isanInorder todevise correct counteracting oradaptive
measures ,more hastobeknown about thepossible
impacts ofclimate change onvarious sectors ofthe
European environment ,and also about thesocio ¬
economic consequences ofanymeasures thatmaybe
taken .Theproblem isparticularly important since itis
closely linked tosome oftheother themes which
follow andtovarious Community policies (research ,
agriculture ,energy ,transport ).
Against thisbackground Table 7indicates overall
objectives ,targets fortheyear2000 ,types ofaction
required andthemain sectors involved .
41
n>IPCO Reports ofWorking Groups ,1990;Supplementary Report ,1992,WMO/UNEP
05 SEC (91)1744 finalof14October 1991

T»ble7:CLIMATE CHANGE
ECTARGETS UPTO2000 OBJECTIVES ACTIONS TIMEFRAME SECTORS
•stabilization on1990levels#)
(progressive reductions »tthe
horizon2005and2010(")noexceedence of
naturalabsorbing
capacityofplanet
earth•Energyconservation measurese.g.
-env.benignenergyuse
-bchavioural changes
-économie andfiscalmcasuresCO, continuous Energy
Transport
Industry
Public
•Improvemeniofenergyefficiencye.g .
-RAD
-infrestructurai changes
-changeintransportmodes
-économie andfiscalmeasureaid Energy
Waste
Transport
Industry
Consumer
*Fuelsubstitution low&rdslessorno
CO,émittingsources(renewables ,
naturalgasetc.)e.g.
-RAD
-infrestructurai changes
-économie andfiscalmeasureaid Energy
•Inventoryofdata before1994 Energy
Agriculture
Waste*measurestobeidentifiednodater
than1994andapplied(possibly
reductiontargets)Methane
(CH.)
Nilrous
oxide(N,0)
Industry noemissions
ofozone
layerdepleting
substances*phaseouibefore1.1.1996
(exceptforsomeessentialuses)CFCs +
carbon -
te&adiloride
+Halons+
Ш
ukhloKthane
HCFCsetc *limitation ofusetomaximum
5%of1990CFCuselevels
#)targetsalreadysetbytheEC
N.B.TheECcommitsitselftohelpandsupportcountrieswhichseekforit,intheiraimforstabilization andreductionmeasuresinrelationtogreenhousegases.Thefollowing
measurescouldbeused:debttrading,technology transfer,generaltradearrangements ,participation inglobalfinancialmechanisms .
(1)Conclusions oftheJointEnergy/Environment Councilof29October 1990.
FIGURE 3:DEPOSITION OFSO,AND NOx FROM EC-12 SOURCES INEXCESS OFCRITICAL LOADS IN1990
RIVM/CCE
D;tl;t:
exCril.Loads
I990
Reuion :
EUROPEil
!
y
JNOEXCEEOANCE
< 200 00 Vs
I
CD*500oo)
CD *1000 00
2000 00es
7000 00 i'Wt Unit:eq/ha.yr
UJ
T­
uA
%
Jc
/
42 DhjM^iK' *(iirulunt-d *
|Vj|,-4.6.|99|
Kt-nurk rxcr*Crrt.Ws
1990

5.2Acidification andAirQuality
Acidification isdue inconsiderable measure tothe
combustion offossil fuels andagricultural practices
andhasdamaging effects onforest ecosystems ,lakes ,
other surface andground waters andsoils .Themain
acidifying substances aresulphurdioxides (SO^),
nitrogenoxides (NOx ),volatile organic compounds
(VOCs ),including hydrocarbons (HCs )andammonia
(NH}).NOx ,HCsandVOCs create products such as
ozone (O,)through photo-oxidation ;these inturn
contribute considerably todamage ofcrops and
vegetation ,andhuman health (smog-periods ).ie.even beyond the65% reduction inS02emissions
andthe60% reduction inNOx emissions ,which
would result from development onthebasis of
scenario 4(Ashasbeen indicated inthe chapter onthe
energy sector ,theCommission haspresented four
scenarios onthefuture energy demand intheEC.An
update ofthese scenarios isinprogress ;theresults are
expected bymid-1 992).
However ,inthecaseofthelessdeveloped regions of
theCommunity andcertain regions which areinthe
course ofeconomic restructuring -theso-called
Objectives 1and 2regions forthepurposes of
disbursement oftheCommunity 'sRegional
Development Fund -thelevels ofacidification (by
reference totheir current emission anddeposition
levels ,andrelatively small impact ondeposition levels
intherestofEurope )would allow forconsiderable
extra development inthese regions onthebasis ofthe
EClegislation already adopted .However ,inareas
within these regions where critical loads arealready
being exceeded orarelikely tobeexceeded ,thesame
stria measures aselsewhere should beapplied .
From thepoint ofview offacilitating optimal
development inthese regions andgreater economic
cohesion ,introduaion ofstriaer measures would
allow even greater scope fordevelopment interms of
both scale andcontinuity .Secondly ,thelower energy
demand andhigher energy efficiency envisaged under
scenario 4,would also serve toimprove the
competitivity ofthese regions bothwithin theECand
internationally .Recent studies intheframework oftheUNEconomic
Commission forEurope have shown thatitispossible
toindicate forcertain typesof ecosystems (andthrough
that,certain areas inEurope )thelevels andloads of
deposition which theycansustain without detrimental
effects (critical loads ,seeexplanatory boxonpage 45).
Figure 3gives anindication oftheexceedances ofthe
critical loads in1990 inEurope asawhole resulting
from deposition ofS02andNOx from Community
sources alone .
Figure 4indicates thattheS02andNOxemissions
resulting from scenario 1(conventional wisdom )will
exceed thecritical loads inlarge parts oftheEC.This
piaure does nottakeintoaccount theextra loadof
acidifiying substances resulting from ammonia
emissions .Itisclear ,thatunder scenario 1,theEC
would notbeheading inthedireaion ofsustainable
energy use .
Thecomputer calculations onthebasis oftheIIASA -
RAINS model (seeexplanatory box)forscenario 4are
more promising butscenario 4would stillnotresult in
asustainable situation by2010 inallregions ofthe
Community (seeFigure 5).Here again ,effeas resulting
from ammonia emissions arenottaken intoaccount
Themessage tobederived from thisisthatemissions
anddepositions inmany regions oftheCommunity
require thatthestriaest possible measures beapplied ,Table Sgivesanindicationoftheoveral IECtargets and
instruments which should beaimed forbytheyear
2000 onthewaytowards asustainable situation .
Table 9indicates themeasures needed toguarantee
levelsof airquality which arenotdetrimental tohealth
andenvironment .
43

FIGURE 4:DEPOSITION OFSO,AND NOx FROM EC-12 SOURCES INEXCESS OFCRITICAL LOADS IN2010 ONBASIS OF
THE"CONVENTIONAL WISDOM "SCENARIO (seeexplanatory boxonpage 32)
RIVM/CCE
»
exce.ssCL
Conv.wis2010
Région :
EUROPE.J ■
>■'
fl
#1ИШ т pTTyj NOEXCEEOANCE
í 20000
r I4 50000
CD 4 tooooo
ÊSá)1200000
S 2500 00S
ИЙ»^§1 OЩЬ iV'ijS./■
Unit :eq/ha.yr
\
'N.,Λ
«3/s-J/-
./
/jnKisclìlc :\X\\KXM »
l>.iU :27.11.IWI
lUnurk :CI.vxerv *fcuro »
etMISS ,orl\\in2010/
/ tr.
FIGURE 5:DEPOSITION OFSO,AND NOx FROM EC-12 SOURCES INEXCESS OFCRITICAL LOADS IN2010 ONTHE
BASIS OFTHE"HIGH PRICES "SCENARIO (seeexplanatory boxonpage 32)
) RIVM/CCE/
D;ii;r .
exCLHP2010
Reiiion :
EUROPEK
LtH
''М-ч. -/j-yî »,
]NOFXCEEDANCE
Is 20000
)i 50000
]s 100000
1s 200000
I5 250000
Unit :eq/Ha.y'»
CD ^
CH *
v
f^\
>7i,':T-\_ 3 1/
//
SiUiWik -A:HPK\m
IhiK*:27.il.IWI
Uvimirk :CI.exccv »Kim »>
cmINS.HPin2010Θ

Explanatory Notes
CriticalLoads
Criticalloadshavebeendefinedasquantitative estimatesofanexposuretooneormorepollutantsbelowwhich,accordingto
presentknowledge ,significantharmfuleffectsonspecifiedelementsoftheenvironment donotoccur.Significantharmfuleffects
areassumedtooccurwhencriticalvaluesofchemicalcompounds inforestsoilsandfreshwaters areexceeded .
AEuropeanmapofcriticalloadshasbeendevelopedattheCoordinadon CenterforEffects(CCE)attheInsdtmeforPublicHealth
andEnvironmental Protecdon (RIVM)intheNetherlands onthebasisoftheEMEPgridsystem(150kmxl50kms )andtheco­
operativemappingexerciseundertaken bynadonaladministradons in1990intheframeworkofanUN-ECEprogramme .
"MappingCriticalLoadsinEurope”,J-P.Hettelingh ,R.Downing ,PAM.deSmet,1991,CCEIR1VM .
TheRAINSmodel
Thisisasimulationmodelspeciallydeveloped,usingGEOMAN software,attheInternational InstituteforAppliedSystems
AnalysisinLaxenburg ,Austria(HASA).RAINSstandsfor"RegionalAcidification Information andSimulation” .
AsusedforthisProgramme ,theRAINSmodelcombinesinformation onlong-range transboundary airpollutionprovidedby
EMEP(theEuropeanMonitoring andEvaluationProgramme ofUN-ECE)with
-information aboutcunemandprojectedenergyuse,agricultural activityandemissionsofS02,NO,andNH3onacountry-by-
countrybasis;
-emissioncontroltechnologies andabatementcosts;
-currentplansforreductionsofS02andNOibytheyear2000.
Alcamo.J. ,Shaw,R.,andllordijk,L„eds.(1990).TheRAINSModelofAcidification :ScienceandStrategiesinEurope,Kluwer,
Dordrecht ,TheNetherlands .
TheMapsusedintheProgramme
ThemapsfoundinthisdocumentindicatetheextenttowhichactualandprojecteddepositionsofS02andNO,exceeddetermined
criticalloads.
Theseexceedances reflectthedifferencebetweentheCCE/RIVMcriticalloadsmapsforEuropeandmapsofacidifying
depositionsofS02andNO,developedforEC-12andwholeofEuropeusingtheRAINSmodelreferredtoabove.Thetwoenergy
scenariosusedaretakenfromtheCommission’s Communication “EnergyinEurope:EnergyforaNewCentury”(July1990).
Whiletheaforementioned energyscenarios,whenjxiblished,didnottakeaccountofthere-unification ofGermany,themaps
providedinthisProgrammerelatingtothepan-European situationdotakeaccountofthecurrentplansforreductionsofS02and
NO,uptotheyear2000intheformerGDR.
Acknowledgement
TheEuropeanCommission wishestoacknowledge thefacilitiesandassistanceaffordedbytheCoordination CenterforEffects
atRIVMinthepreparation ofthemapsusedinthisprogramme .
45

Table8:ACIDIFICATION
OBJECTIVE ECTARGETS UPTO2000 ACTIONS +TIME-FRAME SECTORS/ACTORS
•stabilization atEClevelémissions in
1994(1990level)#)
*30%réduction in2000NOxl) *actionslistedinTable7onglobalscale
alsoapplyforNOxandSOxEnergy
Transport
Agriculture
Industry
Tourism
EC+MS+Energy
andIndustryno
exceedance
ever
SOx 1) *35%atEClevelréduction of
émissions in2000(1985level)*proposalsforproductsiandardsforcoal ,
fueloilsandresiduals before1995
of
NH,(ammonia) •variabletargetsinaccordance with
problemsidentifiedinregions•InventoryofNH^emissions +trends
before1994;standards onnewfarm
buildingsbefore1996MS+LAs+EC
EEA+AGRI
criticai
General
VOCi*10%reduction ofmanmade
emissions in1996
*30%réduction (1990level)in1999*reductions intransportsector-idemin
industrysolventsandpaints,and
chemicalindustryEC+MS+
Industry loadsand
*90%reduction ofdioxinsemissions
ofidentifiedsourcesby2005(1985
levels)Dioxins *Directive (revision)onstandards for
municipal wasteincineration plants
before1994
*proposalforDirectiveonincineration
ofhazardous waste:1992EC+MSlevels
EC+MS
Heavymetals *Integrate *!pollutioncontrolandrcvised
BAT*atleast70%reduction fromall
pathwaysofCd,HgandHremissions
in1995EC+MS+LAs+
Industry
I)TargetalreadysetbyEC
1)b1990theCommission haspresentedasetofscenariosonenergydemandandsupplyandtheirconsequences forNOi.SO,andCO,emissions.Onthebasis
ofcomputercalculations withtheRAINSmodel,regionslistedunderobjectives 1and2oftheStructuralFundswouldstillhaveroomforconsiderable
development fromthepointofviewofacidification .However,whereareaswithintheseregionswouldreachorexceedthecriticalloads,furtherreductionsover
andabovethoseprovidedforintheexistingEClegislationwillrequiretobeintroduced,ballotherEC-regionsthereductiontargetsaslistedshouldapplywithout
anyexceptionsrequiringasubstantial decreaseinenergydemandthroughhigherefficiencyandincreasedenergysavings.
Table9:AIRQUALITY
OBJECTIVES TIME-FRAME ACTORS TARGETS UPTO2000 ACTIONS
before1995EC+MS+ *Allpeopleshouldbe
effectively protectedagainst
recognized healthrisksfrom
AirPollution*implementation andenforcement
ofexistinglegislation onSO,,
NO,,Lead,Particulates andBlack
Smoke*identification ofexistingorpotential
problems
•proposaisforamendmentsofexisting
legisUUenEEA
EC+MS id
MS+LAs
+EEA*Permitted concentration levels
ofairpollutantsshouldtake
intoaccounttheprotectionof
theenvironment*Airqualitymonitoring andcontrolof
concentration levelswithregardto
normsonallsubstances coveredby
legislationnotlaterthan
1998*WHOvaluesbecomemandatory
atEClevel
£C+MS *Extension ofthelistof
regulated substances which
causepollutionanddangerto
publichealthandthe
environmentin1992 ForOzone(O,):
•forhealthprotection :current
levelsifnotexceeding themean
valueover1-hourof175pg/m5
andthemeanvalueover8-hour
of110j!g/m**Directive
•forprotectionofvegetation :a
200pgjm’meanvalueover1-
houranda65pg/m’meanvalue
over24hoursshouldnotbe
exceeded
before1997EC+MS+ ForCarbonmonoxide (CO)and
Cadmium (Cd):
•knowledge ofexistinglevelsand
settingofnorms*identification ofpotentialorexisting
EEAproblems
•compliance withnormsfor
concentrations
before1999 id *identification ofpotentialorexisting
problemsForothersubstances ,suchasheavy
metals,organiccompounds and
depositionofSulphurandNitrogen:
*knowledge ofexistinglevels0
*differenttargetsaccording to
differentexistingsituations

5.3Protection ofNature andBio-diversity
ilution andmore particularly with consequential extinction inthecaseofsome
f,mankind hasbeenwhittling species ,
igical baseofthe living world .
Jamage being carried outtoThe Community strategy will beaimed atthe
isirreversible . maintenanceofEuropeanbiodiversityprimarilythrough
sustainable landmanagement inandaround habitats
-nbyinternational agencies ,ofCommunity andwider importance .Aninterrelated
dividual member states ,the network ofhabitats ,based ontheconcept forNatura
Dnservation andmaintenance 2000 ,should becreated through therestoration and
Jinsome areas areincreasing ,maintenance ofhabitats themselves andofcorridors
)human usesandthespecies between them .Thecreation andmaintenance ofthis
tadehomeless .Much ofthe networkwillbeverymuchdependentonhowcarefully
occurred andiscontinuing totransport ,agricultural andtourist policies areshaped
iontomankind 'sfundamental andpursued inthefuture .Since theIndustrial revolution andmore particularly
overthepasthalf-century ,mankind hasbeenwhittling
away steadily attheecological baseofthe living world .
Inmany instances thedamage being carried outto
complex living systems isirreversible .
Inspiteofmeasures taken byinternational agencies ,
theCommunity andindividual member states ,the
major threats tonature conservation andmaintenance
ofbiodiversity persist andinsome areas areincreasing .
Habitats areconverted tohuman usesandthespecies
thatoccupy them aremade homeless .Much ofthe
development which hasoccurred andiscontinuing to
takeplace isincontradiction tomankind 'sfundamental
desire toliveinharmony withnature andtoenjoy and
derive pleasure from it.
Thecaseforpreserving nature andbiodiversity goes
beyond this:inthefirstplace ,itisanecessary element
intheoverall maintenance oftheecological balance ;
furthermore ,nature provides aninvaluable genetic
bank which isessential tomedical ,biological ,
agricultural andother scientific progress .
Formostwildspecies offloraandfauna thesplitting up
andisolation ofhabitats ,mainly because of
infrastructural worksfincluding high-tension electricity
cables ),posethegreatest threat .Ifhabitats become too
small andifconnecting zones between them are
blocked orlost,essential migration maybeprecluded ,Figure 6outlines thestrategic approach toprotection
ofnature andbiodiversity .
Table 10setsoutthetargets for2000 andtheinstruments
necessary intheshort runtohave theNetwork andthe
surveillance oftheEuropean biodiversity partly
operational intheyear2000 .
Apart from protecting nature andbio-diversity inthe
large-scale dimension which isinferred inthe
preceeding paragraphs ,itbehoves national ,regional
andlocal authorities ,enterprises ,landowners and
householders tomaintain and enhance thenatural
beauty ,parks andgardens intheirownjurisdiction or
neighbourhood .
FIGURE 6:DIAGRAM ONNATURE CONSERVATION
NATURE CONSERVATION
-Publicawareness programme
-Environmenlal EducationINFORMATION
I
1 I
BIODIVERSITY CONSERVATION LANDUSEMANAGEMENT
SUSTAINABLE USE
OFSPECIES-Traderégulation
-Sustainable fishing
-Sustainable breedinganduse
ofexploitable speciesSUSTAINABLE
DEVELOPMENT-ELAforprogrammes etc.
-ReformofStructural Funds
-ReformofCAP
-Newsustainablepolicyfor-Tcairism
-Transport
-Energy
-Extractive industries
-Forestry
-HabitatDirective
-LIFE(ACNAT)
-BirdsDirective
-CITESPROTECTION OF
ENDANGERED SPECIES-EuropeanNetworkbasedonHabitat
directive(Natura2000)
-LIFE(ACNAT-MEDSPA -NORSPA)CONSERVATION OF
NATURAL HABITATS
MONITORING ANDJNVENTORY ENVIRONMENT AGENCY
47

Table10:NATURE ANDBIODIVERSITY
TARGETS UPTO2000 INSTRUMENTS TIMEERAME SECTORS /ACTORS
Maintenance ofbiodiver ¬
sitythroughsustainable
development andmanage¬
mentinandaroundnatural
habitatsofEuropeanand
globalvalue:andthrough
controlofuseandtradeof
wildspeciesAgriculture Forestry,
FisheriesTransport
TounsmEnergyIndustry
1.Maintenance orrestoration of
naturalhabitatsandspedes
ofwildfaunaandfloraata
favorable conservation status•Habitatdirective 1992=> EC.M5.LAf.NGOs .
Farmers
EC+MS+LAs •UpdatingofDirective79/409/
EEConwildbirdsongoing
*settingofcriteriafor
identification ofhabitats,
bufferzonesandmigratory
corridors2.Creation ofacoherent
European network of
protectedsites1992-1993 Id+N'GOs+Farmers
-Natura2000:flagship
programmes ofcarefully
selectedandmanagednatural
areaswithintheEC•actionprogrammes forthe
efficient conservation and
monitoring ofthesites
designedforNatura20001991-1993 Id
3.Strictcontrolofabuseand
tradeofwildspecies •Inventory .monitoring
systems,andrecoveryplans
forendangered and
overexploited species1991-1992 Id
*regulations concerning
InternalandInternational trade
ofendangered species1992=> Id+UNEP(OTES)
*International Conventions
(Biodiversity ,Alpes,Regional
agreements underBonn
Convention )1992=> MS+EC+UNEP
(CITES+BONN
CONVENTION )
*ReformofCAP(notablyzonal
programme *forsupportof
environmentally friendly
agricultural practices)ongoing EC,MS,LAi
*Environmental assessment oi
plansandprogrammes1995==> MS.LAs,EC
•Programmes forpromorion of
publicawareness1992=> Id+NG0s
*Measures tomaintain and
protectforestsprogressive EC,MS+forest-owners
H

5.4Management ofWaterResources
Water isoneoftheelementary sources oflife.Water
quality isalsoanindicator ofthegeneral quality ofthe
natural environment .Without water ,aharmonious
andsustainable maintenance ordevelopment ofsocio ¬
economic activities isnot possible .Good quality
water isavailable only inlimited quantities atagiven
time andplace .According torecent Eurostat /OECD
statistics ,themean annual withdrawal percapita
(including water forirrigation purposes )forEC-12 has
risen from 590mJin1970to650m*in1975,750mJ
in1980 and790 mJin1985 -anoverall increase of
about 35%over aperiod of15years .Withi ntheEC,the
annual withdrawal ratepercapita varied from 200-
300 mJinLuxembourg to1000-1200 mJinItaly,
Portugal andSpain inthelate1980s .Forthepurposes
ofimproving thequality oflifeandasacondition for
achieving sustainable development ,itisessential to
secure sufficient water ofadequate quality throughout
theCommunity without upsetting thenatural
equilibrium oftheenvironmentrestoration ofnatural ground andsurface waters
toanecological lysound condition ,thusensuring
(inter alia)asuitable source forextraction of
drinking water ;
ensuri ngthatwater demand andwater supply are
brought intoequilibrium onthebasis ofmore
rational useandmanagement ofwater resources ;
Manufacturing industry (processing ),theenergy sector
(cooling ),theagricultural sector (irrigation )andthe
tourism sector (drinking andbathing)areverydependent
ontheavailability ofgood quality andsufficient
quantities ofwater ,butareatthesame timethemain
contributors tothepollution ofwater .
Table 11indicates theoverall objectives onwater
quantity andwater quality toberealized inthelong
term ,thetargets tobereached intheyear2000 andthe
actions needed intheshortterm .They areinlinewith
theprogramme ofaction outlined intheTheHague
Declaration onthefuture Community Groundwater
Policy asagreed attheECMinisterial Meeting on26
and 27November 1991 l,).Community policies ,accordingly ,must aimat
prevention ofpollution offresh andmarine surface
waters andgroundwater ,withparticular emphasis
onprevention atsource ;
49
***asconfirmed byaCouncil Resolution on12.12.1991 ,OJNC59,6.3.1992

Table11:WATERQUANTITY ANDWATERQUALITY
ECTARGETS UPTO2000 OBJECTIVES ACTIONS TIMEFRAME ACTORS
Sustainable useof
freshwaterresources
:demandforwater
shouldbeinbalance
withitsavailability-Collectionandupdatingofdata
ongroundwater
-Monitoring andcontrol
measuresongroundwater
-Integratedwatermanagement
andprotection ,including
legislation
•Measures toprotectand
rehabilitate aquifers
•Measurestopromotemore
effectivewateruse
•Economic andfiscalmeasures-Preveni permanent
ovcrdraft
•Intégration ofresource
conservation and
sustainable usecriteriainto
othcrpolicics ,including ,in
particular ,agriculture and
landuseplanning ,butalso
industry (development ,
locationandproduction
procedures )
-Maricedreductionofpollu¬
tionofbothgroundwater
andfreshsurfacewater1992/3 MS+LAs Quantitative
Aspects
by1995 id.
conservation Groundwater &
Surface fresh
watermid1993 EC+MS+
LAs
id MS
id M5+EC+
sectorsvLAs
MS+LA»+ ongoing
EC
-Groundwater andsurfacefresh
water-strictimplementation
oftheexistingdirectives on
urbanwastewaterandnitrate
pollutiontoreducetheinputof
nutrientstothesoil,waterand
sediments .
Withregardtofreshwater
examination oftheneedfora
directive onphosphate
reduction .
-Elaboration offurtherspecific
emissionstandardsencourag ¬
ingthedevelopment of
production processes and
performance standards for
productstopreventforeseeable
negativeeffectsonwater(use
ofbestavailabletechnology
combinedwithtargetstandards
tobeachievedlater)
•Influence standardization
bodiesbyparticipation ofwater
industrywhereconcerned
-Proposals forprogressive
replacement ofharmful
pesticidesandprogressive use
limitations
-Economic andfiscalmeasures-Tomaintain the
qualityofuncontami -
natedgroundwater
-Topreventfurther
contamination of
contaminated
groundwater
-Torestorecontami ¬
natedgroundwaterto
aqualityrequiredfoi
drinkingwaterpro¬
ductionpurposes-Groundwater :toprevent
allpollutionfrompoint
sources andtoreduce
pollution fromdiffuse
sourcesaccording tobest
environmental practices
andbestavailable
technologycontinuous MS+LAs Qualitative
Aspects
Groundwater
1995 EC
1992=»EC+MS+
Industry+
standardi ¬
zation
bodies
(e.g.CEN)
id id
1993 £C+MS
ongoing MS+LAs
♦EC
-Surfacewater:quality
improvement towardsa
betterecological quality
andsafeguard ofhigh
qualitywhereitexists-Surfacefreshwater:proposal
foradirectivetobepresented .
MemberSlatesprogrammes
forallwaterstakinginto
accounttheirspecificsituation;
practicalmeasures ,partly
financedthroughnational
environment protectionfundsBC+MS Tomaintain ahigh
standardofecological
qualitywithabiodivers ¬
itycorresponding as
muchaspossibletothe
unperturbed stateofa
givenwater1992 Surfacewater
-Freshwater
MS 1997
-Marinewater:furthertothe
measurestoachieveahigh
ecological qualityandto
reducesurfacewaterpoUurion :
*Proposalsanmaritimetrans¬
portpreventingenvironmental
damagefromshipping
activities(oilspills,lossof
cargo,reductionofoperational
pollution)tobedeveloped
*Surveillance erfgeographic
zoneswithappropriate
monitoring techniques
*Proposalforadirectiveonthe
reductionofoperational and
accidentalpollutionfromsmall
tonnageboats
*Economic andfiscalmeasures-Marinewater:objectives
andactionssimilartothe
NorthSeaconference to
othersensitiveseaareasof
theEC-Marinewater Reductionofdischarges
ofallsubstances ,which
duetotheirtoxic
persistence oraccumu ¬
latingimpactcould
negatively affectthe
environment ,tolevels
whicharenotharmful
toahighstandardof
ecologicalqualityofall
surfacewaters1993=> EC+MS
MS ongomg
1993=> EC+MS
50
ongoing MS+EC

5.5TheUrban Environment
IntheCommunity ,about 80%ofthepopulation lives
incities andtowns .Theurban areas arethustheplaces
where theproblems oftheenvironment touch most the
qualityof lifeofcitizens .Demographic trends ,including
population ,household sizes andspace occupancy
point towardsever-increasingpressuresin urban areas .
Pursuant totheprinciple ofsubsidiarity ,responsibility
forthequality oftheurban environment andfor
undertaking necessary remedial orimprovement
measures wilIbeamatter forthecompetent authorities ,
primarily thelocalauthorities .AsfarastheCommunity
isconcerned ,some oftheenvironmental legislation
(e.g.Directives onmunicipal waste incineration niand
waste water treatment® )andmany ofactivities it
undertakes through theStructura IFunds leadinevitably
toitsplaying animportant roleinthedevelopment of
cities .Thepurpose oftheCommunity policy must
therefore betoencourage local authorities torisetothe
challenge thattheenvironmental problems ofmany
cities andtowns pose today ,andtoassist them tofind
thebestwayofdoing this .town andcountry land-use planning
optimal management ofindustrial andeconomic
growth ,energy consumption ,andwaste
rationalization ofurban traffic including the
improvement ofpublic transport facilities
protection and enhancement ofthehistorical
heritage ofcitiesandtowns andprovision ofgreen
spaces .
InFigure 7anoverall diagram isgiven which indicates
clearly thecomplexity oftheurban environment
situation andtheactors onthescene .Asfarasthe
concept ofshared responsibi Iityisconcerned ,much of
theeffortwiIIfa11totheindustri al,businessandtransport
sectors andtoindividual citizens /consumers .
With regard tothematter ofobjectives ,targets and
actions ,itisclear thatthequality oftheenvironment
inurban areaswillbenefit fromthegoals andmeasures
outlined inthetables ontheprincipal target sectors
andthose onair,water andwaste .Table 12,hereunder
deals withoneofthemost pressing problems inurban
areas andwhich isnotdirectly covered intheother
tables referred to-noise .More than 16%ofthe
population suffers atnight time from noise levels ,
mainly resulting from roadandairtraffic ,over leq65
dB(A )w.Thiscauses serious health risks .Theprimary
objective should betoremedy thissituation ,before
tackling other levels .Transport ,energy ,industry andinsome cases tourism
arethekeysectoral activities which impact onthe
quality oftheurban environment ,and which also
stand togainsignificantly frommore rational planning
andsustainable management ofurban areas .In1990 ,
theCommission published aGreen Paper onthe
Urban Environment® which suggested apossible range
ofactions inrelation to,inter alia,
Table12:NOISE
OBJECTIVE ACTIONS TIME-FRAME ECTARGETS UPTO2000 SECTORS/ACTORS
*noperson
shouldbeex¬
posedtonoise
levelswhich
endanger
healthand
qualityoflifeTransport +
IndustryNight-time exposurelevelsinLeq
dB(A):
EEA+MS+LAs *inventoryofexposurelevelsintheECbefore1994 *exposureofthepopulation tonoise
levelsinexcessof65shouldbephased
out;atnopointintimealevelof85
shouldbeexceededMS+LAs •noiseabatanenlprogramme lobesetupbefore1995
EC*MS*
Industrybefore1995 •furtherreductions ofnoiseemissions
(cars,lrucka,aircraft,cranet,mowers ,
etc.)Directives tobepresented
progressively ,aimingatimple¬
mentation notlaterthan2000•proportion ofpopulation alpresent
exposedtolevelsbetween55-65
shouldnotsufferanyincrease
*proportion ofpopulation atpresent
exposedtolevelslessthan55should
notsufferanyincreaseabovethat
levelEEA+EC+MS continuons *standardization ofnoisemeasurement
andratings
MS*LAs*EC •measurestoinfluencebehaviour ,such
asdrivingcars,flightprocedures ,
industrialprocessesoperatingatnight
timeid
MS+LAs id •measuresrelatedtoinfrastructure and
physicalplanning,suchasbetterzoning
aroundairports,industrialareas,main
roadsandrailways51
™O)N°L163,89/369/EECandOJN°L203,89/429/EEC
® O)N°L135,30.5.1991 ,91/271/EEC
'.COM (90)218of27June1990 „rrn D•,toon
mSource :ECMT report onTransport policy andtheenvironment ,OECD ,Paris,1990

FIGURE 7:URBAN ENVIRONMENT (DIAGRAM )
REGIONAL DEVELOPMENT
T T
TRANSPORT
Physical planning
Public transport
MobilityINDUSTRY
ENERGY
Physical planningTOURISM
Cultural héritage
MobilityURBANISATION
Démographie aspect
Built-up environment
Poverty
T I
•rir «JT.
'kV/,
ih
ï Soil contaminationWaste
water\/ '\m
Congestion^VI\/ Noise \■\
Water
qualitywaste vr*;
(management ) ь/\/\ Airquality / /Degradation of\
nature /
URBAN
ENVIRONMENT
52

5.6CoastalZones
TheCommunity 'scoastal zones constitute aunique
environmental heritage ,withirreplaceable ecological ,
cultural andeconomic resources .Thewhole ofthe
Community 'smarine resources depends onits
environmental quality ,andmoreover thisnatural
interface between land andseaischaracterized by
extreme fragility .Asanindication ofscale ,the
Community hasabout 58.000 kilometers ofcoastline
excluding small islands andinland seas .environment constitute akey aspect oftheir
development potential ;butthat,atthesame time ,
these natural assets areseverely threatened by
urbanisation ,andthetourism ,transport ,industry ,
energy ,agriculture andfisheries sectors ,although in
thecaseofthelatter sector ,aconservation strategy is
embodied intheCommunity 'sCommon Fisheries
Policy .
TheCouncil ofMinisters(Environment ),inaResolution
adopted on25February 1992l2),hasrequested the
Commission topropose anoveral ICommunity strategy
fortheintegrated management ofcoastal zones ,with
aview toproviding acoherent environmental
framework forintegrated andsustainable forms of
development .Theproposed strategy willcover the
entire ambit ofthecoastal zones ,including fore-shore ,
coastal waters andestuaries ,together withcoastal land
uptothelimit ofthemarine orcoastal influence .
Certain R&Dactivities ,such asthose under the
Community 'sEnvironmental Research ,MAST and
FAR/AIRprogrammes willprovide ascientific basis for
sound ecological management ofthese zones .In
appropriate cases ,theCommunity could givefinancial
support from theStructural Funds ,forexample inthe
context oftheproposed Objective 6,totheeffective
implementation ofthestrategy .Thepressures exerted onourcoasts areincreasing :
coastal regions arestriving tomake good their
lagging development ;
they aresubject toincessant netdémographie
gains ;
coastal tourism isincreasingly popular ,andcan
besubject tosignificant seasonal fluctuations .
These andother pressures result inthereduction of
open spaces and natural sites and substantial
modifications tothelandscape ;theycanalsogiverise
toconflicts inland and seause,andcompetition
between local andregional authorities .
TheCommission 'sCommunication "Europe 2000 "1”
deals atsome length withtheenvironmental importance
anddevelopment potential ofcoastal zones andislands .
Itpoints outthatinmany coastal regions ,particularly
thelessdeveloped ones ,thenatural assets ofthe"(1)
Table 13indicates themain elements which will be
incorporated inthestrategy .
Table13:COASTAL ZONES
INSTRUMENTS OBJECTIVE TIME-FRAME SECTORS /ACTORS ECTARGETS UPTO2000
*framework ofintegrated
management plansonappropriate
levelsbefore1998 MS+LAr+EC *sustainable de¬
velopment of
coastalzonesand
theirresources in
accordance with
thecarryingcapa¬
cityofcoastal
environments•higherprioritytotheenvironmental
needsofcoastalzones,throughinter
alia,bettercoordination between
relevantECpoliciesandbetween
policiesattheEC,nationalandregional
levels
MS+LAs+EC •betterknow-how andexchangeof
experience
•creationandimprovement ofdata
basesandrelevantindicatorscontinuous*operational framework forintegrated
planningandmanagement
before1995 MS+LAs+EC
1993-1994 MS+LAs+EC *pilotprojectsonintegrated
management ofcoastalzones•development ofcriteriaforabetter
balanceoflanduseandconservation
anduseofnaturalresources
MS+LAs+EC
Touristsector
Transpon
Enterprises
Agricultura
Generalpublic1992 =» *-information campaigns
-éducation
-professional training
-Financialsupportfordemonstration
projectsandinnovativeapproaches
(LIFE)*awareness raisingofthepublic,
competent authorities andeconomic
sectors
MS+EC 1993=» *Improvement ofcriteriatoensure
sustainability ofprojectsand
programmes (incLEIA)
53
01COM (91)452final ,7November 1991
®OJN°C 59,6.3.1992a

5.7Waste management
totheprevention ofwaste andsolving thewaste
problems atsource ,theencouragement ofre-use and
recycling ofwaste by,inter alia,separation atsource ,
prioritisation ofwaste streams andtheencouragement
ofarational network ofdisposal facilities .Further ,
application oflifecycle analysis willbepromoted soas
toencourage theintervention ofallpeople concerned
inorder toattain targets tobeachieved within alimited
period .Hazardous waste requires particular attention
inrelation bothtopreventing waste andencouraging
maximum recycling andthedevelopment ofanEC-
wide infrastructure forsafedisposal .Theproblems towhich waste gives riseareboth
specific andrelatively complex :waste isnotonly a
potential source ofpollution itcanalso constitute
secondary rawmaterials .Thechoice ofpriorities in
this sector hasdirect economic and environmental
consequences and isofdirect relevance notonly to
environment policies buttotechnology ,economic
andconsumer policies .
Management ofwaste generated within theCommunity
willbeakeytaskofthe 1990s .Current upward trends
inwaste generation must behalted andreversed in
terms ofboth volumes andenvironmental hazard and
damage .ACommunity strategy forwaste management
totheyear 2000 hasalready been published "1and
endorsed bytheCouncil® .Thestrategy includes a
hierarchy ofwaste management options inwhich
primary emphasisis laidonwaste prevention ,followed
bypromotion ofrecycling andreuse ,andthen by
optimisation offinaldisposal methods forwaste which
isnotreused .Figure 8indicates thestrategi cflow-chart
forwaste management
Thisstrategy willbepursued andreinforced under this
Programme .Inparticular more attention willbegivenEconomic andfiscal instruments such ascharges and
levies will beapplied ,whereever appropriate .The
legislative package ofmeasures onwaste management
also requires toberounded offbytheadoption of
specific directives onpackaging ,theincineration of
industrial and toxic wastes ,onthecontrol and
recuperation oflandfill sites,and amore general
directive oncivilliability fordamage .
Table 14indicates overall objectives ,targets forthe
year2000 andtheactions required intheshort term .
54
01SEC(89)934final ,September 89
®Council Resolution of7May 1990OJN°C122

FIGURE 8:STRATEGIC CHARTFORACOMMUNITY MANAGEMENT POLICY ONHAZARDOUS ANDOTHER
WASTES
ITHEPRINCIPLES VEVALUATION OFTHEWASTEMANAGEMENT
POLICY WTTHRESPECT TOTHEPRINCIPLES
PREVENTION of
theproduction of
wasteRECOVERY of
thewasteproducedSafeDISPOSALFeedback
-Improvement ofrégulations ,
instruments andaction
Réduction ofdis¬
posaiByTechnologies :
QeanTechnologies
ByProducts :
Ecolabel &Product
criteria
ByAvoidance :
Re-use
ByBehavioural
changes :
Producer andCon¬
sumerSegregation and
sorting
Separatecollection
Materialrecycling
Energyrecovery Stricterstandards
I
IVTHEACTIONS IIITHEOBJECTIVES IITHEREGULATORY FRAMEWORK
SPECIFIC APPLICATION
A.Onspecifictypesofwastes:GENERAL APPLICATION
Framework Directive onWasteStrictimplementation ofCom¬
munitylegislation through :Development ofdatabasison:
Wasteproduction &character ¬
istics
-Wastetreatment facilities Directives on:
Wasteofls
-PCBsandPCTs
•Sewagesludge
-Packaging
•BatteriesReiiableDataon:
-Wasteproduction &character ¬
istics
-Wastetreatment facilitiesDirective onHazardous Waste
Establishment ofIntegrated
wastemanagement systems :
plans,network,facilities
Wastemanagement
Development ofecological bal¬
ancesforevaluation ofwaste
management alternativesPrioritywastestreams:
-Usedtyre*
-Haloganated Solvents
-Usedcars
-Démolition waste
-Hospitalwaste
-Municipal wasteRegulation ontheControlon
shipmentsofwaste
Development &application of
economic instruments
specifically designedtowards
wastemanagement
Development andpromotion of:
-CleanTechnologies
-Ecoproducts
-Segregation <fesortingsystems
-Rccycling circuits
-SafedisposalprocessesProposalofDirectiveonCivil
Liabilityfordamagestotheen¬
vironment
B.Onspécifietypesofwaste:
Minimization ofmovements of
wastemanagement operations
Directives andtechnicalstandard :
for:
WasteIncineration (Municipal anc
IndustrialWaste)
LandfilldisposaiEstablishment ofrecyclingcir¬
cuitsandopeningofmarketop¬
tionsforrecycledmaterialsImplementation ofself-suffi ¬
ciencyandproximityprinciples
Development ofproductspecifi¬
cationstoprovidetheuseofre¬
cycledmaterials
Development &application of
community instruments forfi¬
nancialsupport:
-LIFE(ACE,NORSPA ,
MEDSPA )
-Regionalfunds
-Research&development funds
55

Table14:WASTE
ECTARGETS UPTO2000 OBJECTIVES ACTIONS ИМЕ-
FRAMESECTORS /
ACTORS
*overalltarget:rational
andsustainable useof
resourcesIndustry
Agriculture
Transport
Energy
Tourism
EC+MS+LAs
Industry
EC+MS+LAs
Industry
Ind+Public+
EC+MS+LAs
EC+MS+LAs
Ind+NGOs +
Public9prevention ofwaste
(closingofcycles)
•maximalrecyclingand
reuseofmaterial
•safedisposalofany
wastewhichcannotbe
recycledorreusedin
followingrankingorder.
•combustion asfuel
•incinération
-landfill•wastemanagement plansin
MemberStates
•stabilization ofquantitiesof
wastegeneratedatECaverage
300kg/capita(1985level™);
onacountrybycountrybasis
noexceedance of300Itg/
capita
•recycling/reuseofpaper,glass
andplasticsofatleast50%
(ECaverage)
•Community-wide ,infrastruc ¬
ture,forsafecollection ,sepa¬
rationanddisposal
•noexportouisideECforfinal
dispôsal
*recycling/reuseofconsumer
products
•marketforrecycledmaterials
*considérable réduction of
dioxinémissions (90%ré¬
ductionon1985levelsby
2005)•landfillDirectiveopera¬
tional
•directiveonpackaging
opérational
*cleanertechnologies +
productdesign
*policyonprioritywaste
streams,stoponlandfill
forspecificwastes(leg¬
islation+voluntary
agreements )
*reliableEC-dataonwaste
generated ,collectedand
disposed
*systemofliabilityin
place
*économie incentives andin¬
struments(tnci.deporitretum
Systems+vol.agreemmts)
*standards fordioxin
emissions frommunici ¬
palwasteincinerationMunicipal
wastebcforc1995
1995
progressive
ongoing
1995 EC+MS+LAs
+EEA
2000 EC*MS
ongoing MS+EC+
Ind.
before1994 £C+MS+LAi
Hazardous
waste*prevention ofwaste
(closingofcycles)
*maximal reuse/recy¬
clingofmaterial
*safedisposalofany
wastewhichcannotbe
recycledorreusedfol¬
lowingrankingorder
-combustion asfuel
-incinération
-landfill•noexportoutsideEC forfinal
disposal
*wastemanagement plansiet
upinMemberStates
•EC-wide^nfrastructure for
safecollection,séparation and
disposai
•marketforrecycledmaterials•landfillDirectiveopera¬
donal
•Directive onincineration
ofhazardous wasteop¬
erational
•policyonprioritywaste
streams,stoponlandfill
forspecificwaste
*cleanertechnologies
*reliableEC-dataonwaste
generated ,collectedand
disposed
*settingupofboursede
déchets
*systemofliabilityin
place
*inventoryofrislcs
*économie inceatives mdb-
«ramena,bd.voligreemanibefore1995 EC+MS+LAs
Indusuy
EC+MS+LAs
Industry1995
ongoing EC+MS+lnd
+LAs+NGOs +
Public
Ind.+EC+MS
£EA+MS+LAi
EC+Indongoing
1995
before1995 EC+MS+lnd
2000 EC+MS
1995
ongoingEC+MS+Ini
MS+EC+
Ind.
mBasedonEUROSTAT andOECDstatistics
56

Chapter6:
Management ofRiskandAccidents
Without prejudice totheoverall objective ofsustainable development ,itisessential thatovertheremainder of
thisdecade ,theassessment andmanagement ofrisksandtheresponse toaccidents andcatastrophies should be
improved considerably .Setoutbelow isasummary ofthemain riskareas towhich priority willbegiven under
thisProgramme .
6.1Industry-RelatedRisks
Protection oftheenvironment and human health
requires thatindustry-related risks betackled ona
number offronts -general industrial activities ,chemicals
controls ,biotechnology andproduct-labelling .A
considerable amount ofprogress hasbeen made as
respects both legislation andcontrols inpursuance of
theprevious Community action programmes onthe
environment ,notablycontinue aspolluting agents longafter their original
purpose isserved .Themost important industrial uses
ofchemicals areintheprocessing ofpaper products ,
primary metals andfood products ,petroleum refining
andthemanufacture oftextiles ,transport machinery ,
electrical machinery andequipment ,rubber and
plastics .
Some ofthemore beneficial aspects ofthenew
techniques ofgenetic engineering andbiotechnology
have been referred toinChapter 4.1.However ,there
areconcerns thatthisnew technology might entail
potential risksnotonly related tohuman health ,but
also forthetotal environment .There could bearisk
thatthewidespread useandrelease ofnovel ,genetically
modified organisms could upset thedelicate balance
existing innature oreven have evolutionary impacts .
Consequently ,sound management ofbiotechnology
bothwithin theEuropean Community andbeyond isa
must .Directive 82/501/EECmonindustrial accident
hazards ,more general lyreferred toasthe"Seveso "
Directive ;
*Directive 67/548/EEOaandsubséquent amending
Directives ontheclassification andlabelling of
dangerous substances ;
*Directives onnoxious emissions toair,discharges
towater andmanagement oftoxic anddangerous
wastes ;
Regulation ofbiotechnology calIsforadelicate balance
between public health /environmental concerns and
research /industrial interests .TheCommunity hastaken
aclear ,preventive approach inadopting legislation to
establish acommon setofenvironmental risk
assessment requirements andsafety measures .This is
intended toprotea thehealth ofcitizens andthe
environment ,aswell asensuring asingle unified
market forbiotechnology .*Directive 90/219/EEC(J>regulating theuseof
genetically modified micro-organisms inresearch
laboratories andindustrial production plants ,and
Direaive 90/220/EEC 4'toensure appropriate risk
assessment andmanagement when genetically
modified organisms arereleased into the
environment ;
Nevertheless ,much remains tobedone ,especially in
respect ofchemicals andbiotechnology .
Chemicals have become avirtually indispensable part
ofmodem life.Almost allproduas contain some
chemicals orareprocessed orwrapped bymeans of
chemicals .More than 7million chemicals arenow
identified ;about 100,000 areincurrent useto
manufacture produas .Apart from theincreasing
number ofchemicals ,there hasbeen aphenomenal
growth inthequantities produced .Forexample ,global
produaion oforganic chemicals alone hasjumped
from 7million tonnes in1950 to63million tonnes in
1970 andtoover 250million tonnes atpresent .Most
chemical agents arepotentially hazardous ifincorrealy
applied orifreleased inlarge quantities either by
design oraccident .Moreover ,many chemicals tendtoTheCommunity hasalsotaken steps tomobilize the
considerable technical potential available inthe
European standardisation bodies inpursuit ofeffeaive
application ofbiotechnology and insupport of
legislation ;thestandardisation programme will be
extended toinclude methods foridentification of
GMOs ,standard testing methods forevaluating
environmental impaa andriskandcommon evaluation
protocols .
Figure 9overleaf provides aflowdiagram showing the
process fordealing with existing chemicals .Priority
aaions tobetaken over theremainder ofthisdecade
inrespect ofindustrial risks ,chemicals and
biotechnology aresetoutinTable 15,below .
57
0)O)N°I230,5.8.1982
O)N°L196,16.8.1967
OJN°L 117,83.1990
OJN-L117 ,8.5.1990а
a
a

FIGURE 9:FLOW DIAGRAM SHOWING THE SELECTION PROCESS FOR DEALING WITH EXISTING CHEMICALS
2000 High Production Chemicals
-Data collection (upto1993 )
-preliminary assessment
200Priority Chemicals
-detailed assessment ,
(25peryear for8years )
50Chemicals
Subject to
comprehensive
risk réduction
programmes
before the
year
2000
0

Table15:RISKMANAGEMENT
OBJECTIVES TARGETS UPTO2000 MEASURES TIME-FRAME ACTORS
(a)Industrial
Activité
Improvedsafetystandards -Management
ofIndustrial
RisksComprehensive appraisalofexperience within
theframework ofD.82/5011993/4 EC
Development ofsafetymanagement
standardsReporttoCouncilandParliament ,including
anynecessaryprogramme ofaction1995 EC
Improvement in,andharmonisation
of,implementation measuresDevelopment ofstandardsforriskassessment
andmanagementongoing Standards
Institutes
100%coverage ofdangerous
establishmentsCompréhensive reviewofimplémentation 1994,1998 EC
Improvedmanagement andprocedural
standardsDevelopment ofStandardforenvirenmental
management systems-General
Environment
Controlsongoing Standards
Insliiutes
1994=> Enterprise Eco-audit(progressive )
(b)Chemicals
Control
Effectivenotification procedure for
allchemicalsNotification ofallnewchemicals ongoing EC,MS.
Industry
EC,MS.
IndustryData
Collection
Datacollection ofallexistingchemicals .
Councilregulation onexistingchemicals1992=»
Hazard
IdentificationContinualupdateinthelightofscientificand
technicalprogressongoing ECMS. Maintenance /improvemeni ofexisting
classification cnLena
Mamjactwas
+importers ongoing Extension oflistofclassified substances
EC Risk
AssessmentAmendment ofDirective 67/548/EEC 1992/3 Commonprinciplesforassessments
Councilregulationonexistingchemicals 1993=» EC,MS.
IndustryAssessment of2000highproduction
volumechemicals
EC,MS.
IndustryCouncilDirective onnon-agricultural
pesticides1994=» Assessment of500activesubstances
innon-agricultural pesticides
1992 EC+ Establish theAdvisory Committee on
chemicals riskreductionRisk
ManagementStrengthen linksbetweenclassification
andcontrolmeasures Indusuy
1994=» EC,MS,
IndustryRisk Legislation +voluntaryagreements Riskreductionprogrammes for50
prioritychemicals Réduction
(с)Що-
technotoev
ongoing Comprehensive reviewofimplémentation EC-Riskmanage ¬
ment for
Contained Use
ofGMOs100%coverageofallinstallations and
activities
1992=» Development ofmoredetailedcriteria EC+MSEffectivesafetymeasuresforuseof
GMOsinresearch4industry
Comprehensive reviewofimplementation and
technicaladaptationid •Riskmanage ¬
ment for
release of
GMOstothe
environmentEffectiveapprovalprocedureforall
releasesintheCommunity ,bothfor
researchandindustryongoing
1992 EC Proposaiforrtgulaioryinstrument OversightofexportofGMOstothird
countries
•Risk 1993=» EC+MS+
Standards
Institutes
(e-g.CEN)Development ofrisk
methodologiesassessmentCommonapproaches andprinciples
forenvironmental riskassessmentassessment
1993=> Assessment andcommonacceptance of
methodsCommon testing methods ,
identification methods ,etc.
1992 EC+MSEClégislation SafetransportofGMO’s
(d)Protection of
mimais nsrd
forctDerimen -
talDtmxw^i
59 EC,MS,
Industryongoing Directive86/609/EEC
(seealsoMaastricht Declaration onthe
protectionaianimais)50%reduction inthenumberof
vertebrate animals usedfor
experimental purposesRéduction in
animalexperi-
mentuion

6.2Nuclear Safety andRadiation Protection
The Euratom Treaty lays down theCommunity 's
objectives andtasks inrelation tothepeaceful useof
nuclear energy .Nuclear safety hasreceived special
attention inrecent times both inside andoutside the
Community .Theincreasing credibility ofCommunity
actions intheaftermath oftheChernobyl accident ,the
Transnuclear affair and,more recently ,thefinancial
and technical assistance provided towards
improvement ofsafety measures inthenuclear reactors
ofthecountries oftheformer Soviet Union andCentral
andEastern Europe have increased thepressure onthe
Community toprovide leadership inthefieldofnuclear
safety .
Within theCommunity itself ,nuclear electricity
generation atpresent accounts forabout 34% ofthe
totalelectricity supply produced byabout 132power
stations throughout sixMembers States ofthe
Community .This share islarger inEurope than inany
other partoftheworld andreaches proportions of60
and70% respectively inBelgium andFrance .Forthe
foreseeable future nuclear installations will continue
tobeanimportant source ofenergy intheEuropean
Community ,especially inview ofitspotential to
guarantee independance from third countries forour
energy supply andtoavoid theenvironmental impacts
ofmore traditional energy sources ,notably coal and
oil.Accordingly ,acontinued effort innuclear safety
andradiation protection ,aswell asappropriately safe
arrangements formanagement ofnuclear waste and
decommissioning ofobsolete plants ,willbenecessary .workers throughout theCommunity indifferent sectors
using ionising radiation ,such asthenuclear power
industry and medical ,industrial and research
applications .
Because nuclear research andnuclear technology are
areas ofrapid change andsince there arestillmany
developments tocome inradiobiology andradio
pathology ,ithasalways been considered important
thatthesafety standards bekeptuptodate .They have
been updated several times since 1959,thelastoccasion
being in1984 .TheCommission hassubmitted a
proposal totheCouncil ofMinisters foraDirective to
update thebasic safety standards andtoprovide a
rigorous system ofprior authorisation andcontrol of
movements ofradioactive wastes from origin tofinal
destination point 121.
Following theaccident atChernobyl inApril 1986the
Community adopted common food controls 131inorder
bothtoprotea thehealth oftheCommunity 'scitizens
and toavoid internal trade conflias .ACouncil
Regulation ofMarch 1990“’ provided forthe
continuation ofthese controls and established a
mechanism togovern theprogressive return tonormality
thereafter .Regulations have alsobeen made inregard
tointervention levels forallpotentially important
radionuclides infoodstuffs ,including baby-foods ,dairy
procedure andliquid foodstuffs ,tobeapplied inthe
event ofanyfuture accidents .Thesetofrules nowin
force arereckoned toconstitute acomplete proteaive
system asfarasfood stuffs areconcerned .
Inrecent times there alsohasbeen increasi ngevidence
ofaradiological significance ofexposure ofthe
populationto indoor radon concentrations .InFebruary
1990 ,theCommission issued aRecommendation
following theprinciples laiddown bytheInternational
Commission onRadiation Proteaion (ICRP )taking
account ofthemost recent data onradon 111.TheChernobyl accident alsodemonstrated thatthe
provision ofinformation atinternational ,national and
local level hadtobeimproved .Two major measures
taken bytheCommunity inthisrespea since then are
(i)Arapid information system ,ECURIE ,established
inDecember 1987 (S);thissystem iscompatible
with ananalogous system setupbyIAEA inthe
frame oftheConvention onearly notification of
nuclear accidents .
(ii)ADireaive ,adopted inNovember 1989 14*,on
informing thegeneral public about health
proteaion measures intheevent ofaradiological
emergency ;thisDireaive and asubsequent
Communication define the content ofthe
information tobeprovided tothepopulation
under normal circumstances and incase ofan
emergency .
TheCommunity hasalso undertaken aseries of
measures intheareaofpublic information thatinclude
thepublication anddistribution ofhandbooks ,Inorder todealinaglobal waywith allthese types of
exposures ,theEuratom Treaty callsontheCommunity
toestablish uniform safety standards toprotea the
health ofworkers andofthegeneral public andensure
thatthey areapplied .Thistaskincludes regulatory ,
technical andinformative aspeas .
Basic safety standards were firstissued intheform of
Direaives in1959 .These provide thebasis fora
comprehensive Community policy onradiation
proteaion ,especially asthebasic safety standards
apply topraaically anyaaivity which might involve a
risktothepopulation ,toworkers and tothe
environment ,caused byirradiation orcontamination .
These standards apply atpresent toabout 900,000
0)
60m OJN°L 80,273.1990
® Council Directive 92/3/EURATOM of3February 1992
a OJN°L371,30.12.1987 -OJN°L211,22.7.1989 -OJIM°l101,13.4.1989
*• OJN°L 82,293.1990" OJN°L 371,30.12.1989" OJN°L 357,7.12.1989

brochures andvideos aimed atmedia professionals
andthepublic atlarge .
Itisparticularly important tothenuciear energy sector
thatpublic confidence initbemaintained oreven
enhanced .Forthispurpose itisessential notonlythat
theindustry operates toacceptably highsafety standards
butalso that itisseen todoso.This will require
widespread public information from credible sources .
The national authorities and theutilities themselves
have theprimary roleinthisregard .However ,the
Euratom Treaty entitles theCommission toverify the
operation andefficiency ofenvironmental monitoring
facilities installed inMember States .This right was
exercised occasional lyintheearly sixties .InDecember ,
1989 theCommission decided toresume itsactivities
inthisfield.To date ,visits have been made atthe
Philippsburg nuclear power station (Germany )andat
thefacilities forcontrolling theenvironmental
radioactivity oftheLuxembourg Ministry ofHealth ;
thisprogramme willbestepped upconsiderably inthe
period upto2000 .Inspections ofequipment for
measuring discharges ofradioactive effluents andfor
environmental monitoring will becarried outatthe
request ofaMember State orontheinitiative ofthe
Commission .Particular importance willbeattached to
theinspection offacilities associated with sites of
major public concern .
Nuclear installations ofthefirstgeneration areatthis
stage becoming obsolete orareprogrammed tobe
decommissioned inthenearfuture .Since thisprocess
willcontinue aslong asnuclear power plants areused
forenergy production ,itisimperative thatsatisfactory
radiation protection criteria fordismantling nuclear
installations ,including therecycling ofthematerials
andforrestoration ofnuclear sites beadopted and
implemented asamatter ofconsiderable urgency .
Among thevarious actions aimed atimproving
preparedness intheevent ofanuclear accident ,a
number ofCommunity initiatives onmutual assistance
inthecase ofanuclear accident orradiological
emergency arealready under way .Theyinclude regular
meetings ofexperts towork towards better utilization
ofavailable resources intheevent ofanuclear accident
orradiological emergency .Afirstdraftofaninventory
oftheresources available tocounteract theeffects of
occurrences ofthistype hasalready been prepared .
Apart from performing specific tasks ,themeetings are
inthemselves creating aready network of
correspondents fromthecompetent authorities ofthe
Member States toprovide foroptimum mutual
assistance within theCommunity should theneed
arise .Aspecial effort willbemade inthefieldofinformation
andeducation ofthepublic onradioactivity and
radiation protection aspects .Inparticular ,inprimary
andsecondary education ,pedagogical support material
will bemade available forteachers inanextended
project .Suitable training ofyoung scientists ,medical
personnel andother workers dealing with ionizing
radiation willcontinue toplay animportant rolein
radiation protection .Several support actions areat
present under consideration ,including atraining
brochure fortransport workers who transport
radioactive material orwaste ,avideotape forgeneral
practitioners andgraduating medical students on
radiation protection inradiodiagnosis ,informative
brochures fordentists ,etc.
Finally ,inthefieldofmanagement ofradioactive
wastes anumber ofsignals indicate thatthetime has
come toinitiate work onaCommunity-wide strategy
thatembraces alltypes ofradioactive waste including
industrial andsanitary waste generated outside the
nuclear fuelcycle .Such strategy should have asan
overriding goal ofassuring theprotection ofthe
environment ,workers andpopulation includingfuture
generations .Thepreparatory work will take into
consideration theexisting Community instruments as
well astheimplication oftheInternal Market forthe
management ofradioactive waste .
Akeyelement ofthestrategi cplanwi 11beaCommunity
Directive thatwillmodify thebasic safety standards for
radiation protection tocover transfers ofradioactive
wastes .TheDirective isalready inanadvanced state
ofpreparation andwillextend toradioactive waste the
existing Community provisions onshipments of
hazardous waste .According totheproposal under
discussion allmovements ofradioactive waste willbe
submitted toarigorous system ofauthorisation and
control from theirorigin totheir final destination .
Table /6indicates theobjectives ,targets andmeasures
toapplyovertheremainderofthisdecade .Insummary ,
theCommunity willcontinue toimprove standards of
nuclear safety andradiation protection inorder to
maintain itsexcellent record ;and asanessential
complement ,theCommunity will continue to
contribute tomitigation oftheconsequences ofthe
Chernobyl accident andtoupgrading thesafety of
nuclear installations inthecountries oftheformer
Soviet Union andinCentral andEastern Europe .This
latter aspect isdealt more fullywith inthechapter
dealing withinternational co-operation .
61

Table16:NUCLEAR SAFETY
MEASURES OBJECTIVES TARGETS UPTO2000 TIME-FRAME ACTORS
UpdateexistingCommunity Basic
SafetyStandards according tothe
1990ICRPrecommendationsAmemimentofDirective 80/836ÆURATOM (a)Upgrading of
safetymeasures1992 => EC,MS
KeepBSSuptodatewithscientific
developments andlatestICRP
recommendationsAsabove ongoing ECMS
Harmonise Community nuclear
safetyrequirementsDevelopandimplement CouncOdecisionof
25.07.1975ongoing £CMS
ExtendCommunity safetyculturetothe
countriesoftheformerSovietUnion
andCentralandEastonEurope-TechnicalAssistance Programmes
-ExtendG-24coordination toincludethe
countries oftheformerSovietUnion1991=>
1991=>EC,MS,Ind.
EC.G-24
International Framework Conven-ActivesupporttotheIAEAinthepreparatory
work1992 =» EC,IAEA
don
Réactivation ofaTreatyprovision -Definevérification objectives andgoals (b)Vérification of
monltoring Ins¬
tallalionsarticle35
-EURATOM1991=» EC
-Implemenlation ongoing EC+MS
CompleteBSStoincludetransfers
ofradioactive wasteSupplément Amendment ofDirective
80/836/EURATOM(c)Strategy on
wastemanage ¬
ment1992=> EC,MS
Strategicmanagement planforall
radioactive wasteEstablish,adoptandimplementstrategicplan 1992 =» EC,MS.
Indusuy
Radiationprotection education in
primaryandsecondaryschool-Handbook forteachers (d)Enhancement
ofpublic Informa ¬
tion and education1992 EC,MS
■Brochures ,videos ongoing id
Improve qualityofpublic
information Standingconference onhealthandsafetyin
thenuclearageongoing EC
EC Preparation andpublication ofajournalist's
guidetonuclearpower1992
EC Recommendation foraharmonised approach
topublicinformation onindoorradon
exposure!1993
EC Improvequalityofionisingof
differentprofessional groupsCourses indifferent fieldsofradiation
protectionandnuclearsafety1992=» (e)Adequatetrain¬
ingInradiation
protection
0

6.3Civil Protection andEnvironmental Emergencies
During theperiod ofthisProgramme ,thisaspect ofthe
Community 'sactivity willbestepped upboth asa
practical contribution tothecreation ofaPeople 's
Europe and,more importantly ,toreflect political and
economic developments within and outside the
Community .
Two particular aspects willdetermine thechoice of
priorities inthisarea :
firstly ,theneed toimprove thegeneral stateof
readiness andtheoperational capacity ofcivil
protection services forthepurposes ofsecuring
human safety intheevent ofnatural and
technological disasters ;
secondly ,theneedtoimprove emergency response
inthefaceofgrowing risks arising from large
industrial concentrations ,andtheproduction ,
storage andtransportation oftoxic orhazardous
substances and wastes ;inaddition ,there isa
special needtointensify international co-operation
toimprove response mechanisms inthecaseof
grave environmental catastrophies such asforest
firesandoilspills which ,because ofscale ,often
exceed thecapacity ofasingle statetorespond
effectively .
Inoperational terms ,itwill benecessary topressahead
with further improvement andrefinement ofthe
mutual assistance procedures andarrangements inrespect ofbothnatura Iandtechnologi caIcatastroph ies,
including accidental pollution ;optimisation of
interventions inthecase ofemergencies and
catastrophies inthirdcountries willrequire improved
coordination oftheefforts oftheMember States within
theCommunity and increased co-operation with
pertinent international organisations (IMO,UNEP ,
UNDRO ,etc).More satisfactory mobilization ofboth
personnel andmaterial resources could beachieved
by
*theestablishment ofTask Forces torespond to
different types ofemergency ;
*increasingthe range andquality oftraining courses
andsimulation exercises ;
*improving information andcommunication
systems formore rapid andefficient transmission
ofinformation ,instructions anddecisions between
thekeyplayers inemergency situations .
TheCommunity -with theCommission acting as
facilitator -willcontinue todevelop andimprove the
present information network and operational
procedures .Furthermore ,arenewed effort willbe
made inthematter ofpublic awareness andeducation .
Thedesignation ofthe 12-month period from June
1993 asEuropean YearofCivil Protection willoffer an
important andtimely boost inthisregard .Activities
launched inanticipation ofandduring thatyearwillbe
continued systematically atleast uptotheyear2000
when theUNsinternational decade onprevention of
natural catastrophies closes .
63

Chapter 7:Broadening theRange ofInstruments
Oneoftheprincipal strengths oftheEuropean Community ,asdistinct fromother international institutions such
astheUnited Nations agencies andOECD ,isthatitisalegislative body ;when itactsinalegislative capacity
itsmeasures arebinding onitsconstituent Member States .Under thefirstfouraction programmes ,Community
activity haspredominantly been intheform ofCouncil Directives andRegulations .Agreat majority ofthe
measures adopted have been designed torespond toclearly identified problems ortoapply controls tocertain
processes oractivities ,though there arenotable exceptions ,such asthemeasures onenvironmental impact
assessments ,protection ofwildfauna andflora andaccess toenvironmental information .Many oftheDirectives
serve thedual purpose ofprotecting theenvironment andeliminating distortions ofcompetition within the
Internal Market
Asaconsequence ofthislegislative activity ,theCommunity anditsconstituent Member States have achieved
asignificant degree ofsuccess incontaining threats topublic health andtheenvironment ,which cannot be
ignored andshould notbeunderstated ,andnowhave abodyoflawwhich ,though relatively young andfarfrom
complete ,provides averysolid foundation forthe further stepswhich require tobeundertaken intheyears ahead .
There willbeacontinuing need forlegislative measures atCommunity level ,particularly inrespect of
theestablishment offundamental levels ofenvironmental careandprotection ;
Community commitments towider international agreements ;and
common standards and/orcontrols which maybedeemed necessary orexpedient topreserve theintegrity
oftheInternal Market .
Butitisnotfeasible toadopt aDirective orRegulation which says:"Thou shalt actinasustainabie manner ".Also ,
because ofthe broad scope ofmany ofthepresent-day environment issues andthethreats toourbiosphere posed
bycurrent trends inpolitical ,economic andsocial life,itisimperative tofocus onthecauses ofenvironment -
based problems inadifferent manner .Itisessential togototherootofthese problems -human activity ,human
values inrelation totheenvironment andnatural resources andhuman behaviour andconsumption patterns .
Inorder tobring about substantial changes incurrent trends andpractices andtoinvolve allsectors ofsociety ,
inaspirit ofshared responsibility ,abroader mixof"instruments' needs tobedeveloped andapplied .
Environmental policy willrestonfourmain setsofinstruments :regulatory instruments ,market-based instruments
(including economic andfiscal instruments andvoluntary agreements ),horizontal supporting instruments
(research ,information ,education etc.)andfinancial support mechanisms .Thefollowing elements areimportant
tothecreation ofanextended package :afuller listofobjectives ,targets ,time-frame andrelevant actors isset
outattheendofthisChapter -seeTable 17.
7.1Improvement ofEnvironmental Data
Satisfactory guardianship oftheenvironment ,from (a)inmost Member States there isanumber of
conception ofpolicies totheadoption andapplication different institutions ororganisations involved in
ofdefacto measures ,canultimately beassured onlyif data collection and analysis ;differences in
thequantityandqualityofrelevantinformationisgood nomenclatures ,criteria ,methodologies and
enough .Better knowledge andunderstanding ofthe interpretation militate against both compatibility
fundamental lawswhich govern theperformance and andcomparability ,whether atnational ,regional
evolutionary processes ofnature under theinfluence orCommunity levels ;
ofnatural phenomena andhuman interventions are
indispensable .Knowledge ofnature and natural (b)there isaserious lackofbase-line data ,statistics ,
processes isstilllimited ;theongoing scientific debate indicators andother quantitative andqualitative
about thegreenhouse effect and itspossible material required toassess environmental
consequences offers astriking example ofthis. conditions andtrends ,todetermine andadjust
public policies and tounderpin financial
Work onthepreparation oftheReport oftheStateof investments ;
theEnvironment published concurrently with this
Programme hashightlighted thelacunae and (dthere isanalmost complete absence ofthemore
deficienciesintheavailableenvironmental information precise ,quantitative dataonhuman interventions
intheCommunity andtheMember States : andinfluences ontheenvironment which are(b)there isaserious lackofbase-line data ,statistics ,
indicators andother quantitative andqualitative
material required toassess environmental
conditions andtrends ,todetermine andadjust
public policies and tounderpin financial
investments ;
(dthere isanalmost complete absence ofthemore
precise ,quantitative dataonhuman interventions
and influences ontheenvironment which are
needed formeaningful modelling exercises and
theoptimisation ofpolicy and large-scale
investment decisions ;0

(d)information which isavailable isoften not
processed orpresented inasuitable form for
potential end-users -administrations ,enterprises
andgeneral public -anddoes nottakeaccount of
thedifferent levels ofsophistication or
simplification required ,norofthefactthatdifferent
types ofdecision require different types orlevels
ofinformation .*increasingthe frequency andimprovingthe quality
ofstateoftheenvironment reports atlocal ,regional ,
national andCommunity levels .
TheEuropean Environment Agency :anessential tool
Improvement ofenvironmental information will
demand acombined effort onthepartofallrelevant
bodies and levels ofadministration working inan
effective partnership .Against thisbackground itwas
decided toestablish aEuropean Agency forthe
Environment and the European Environment
Information andObservation Network (1).The task
assigned totheAgency istosupply those concerned
with theCommunity Environment policy ,inthe
Community Institutions orintheMember States ,with
reliable information ,comparable across theEuropean
territory .Thisinformation willdescribe thequality and
sensitivity oftheenvironment ,aswell asthepressures
bearing uponitTheAgency willoperate inconjunction
with EUROSTAT andtheR&Darms oftheCommission .
Ther6leoftheEuropean Environment Agency isseen
ascrucial inrelation totheevaluation anddissemination
ofinformation ,distinction between realandperceived
risksandprovision ofascientific andrational basis for
decisions andactions affecting theenvironment and
natural resources .Itisimperative ,accordingly ,thatthe
Agency become fully operational asamatter of
considerable urgency .Inthelightoftheforegoing ,andbearing inmind the
relationship between good decisions and good
information ,itisimperative thatunder thisProgramme
ahigh levelofpriority beassigned to
•filling thecurrent gaps inbase-line data onthe
environment andimproving their compatibility ,
comparability andtransparency ;
•standardisation ofscientific andtechnical aspects
ofinformation retrieval ,collation and
interpretation tooptimisethevalueandusefulness
ofdata obtained atand between different
administrative and business levels and between
different geographical regions andlevels ;
•exploiting andstrengthening theexperiences and
capacities oftheEuropean statistical system to
deliver environmentally relevant statistics ona
regular basis ,which willbecomparable toand
linked tothetraditional official statistics inthe
economic andsocial fields ;
7.2Scientific research andtechnological development
Whilegovemment,enterpriseandconsumersrepresent matters ofbio-ethics ,formulation andpromotion of
theessential economic players whose decisions can priority research programmes ,exchanges ofdataand
benefit orimpact upon theenvironment ,therange of results andtechnology transfer ,
options which canbebrought intoplaywillrely
heavily onthesuccess inidentifying cause andeffect TheCommunity already hasasignificant involvement
relationships andinfinding appropriate scientific and inresearch anddevelopment related toenvironmental
technological solutions .InChapter 2itisrecognised problems andissues .Programmes such asEnvironment
thattheultimate limiting factor foreconomic and andMarine S&Tinclude basicandstrategic studies of
social development isthetolerance levelofthenatural global change ,itspossible impacts ,ecosystem
environment .Concepts such asenvironmental dynamics ,natural andtechnological risksaswellas
tolerance andresilience ,risk,impact ,etc,which are environmental improvement through cleaner
essential intheformulation ofpolicy ,canonlybetechnologies ,waste management andmitigation of
defined andutilized byunderstanding fundamental industrial accident risks .Other R&Dprogrammes ,
environmental processes operating atthekeyspatial suchasthose onbiotechnology ,agro-industry ,energy ,
andtemporal scales ,andhowthese arealtered byindustrial materials andinformation technologies ,all
human activity .Ineachofthesectors addressed inthis contain workontheirrespectiveenvironmental aspects .
Programme ,particular attention needs tobepaidto
opportunities forimproving theenvironment andthe However ,itisclearthatasubstantially increased and
management ofthenatural capital stockthrough the more coherent R&Deffort isrequired inorder to
betteruseofexisting technologies andthedevelopment address themorefar-sighted ,cohesive andeffective
anduseofneworimproved ones . strategycontainedinthisPolicyandAction Programme .
Inessence ,EC-level R&Dmust provide direct support
Considerable achievements havealready beenmade forthefollowing objectives ,interalia,
inthedevelopment ofclean technologies andgenetic .
engineering ,forexample ,butawealth ofopportunities -Provision ofascientific basisforevaluating stateo
andpotential newindustries awaits exploitation .For theenvironment andimproved earlywarning of
themostpart,thisfieldwillneedtobetackled at environmental problems.Thisimpliesdevelopment
company ,regional andnational levels .TheCommunity ofenvironmental baselines ,indices ,advanced
foritspart,canmake important contributions inthe monitoring andassessment systems ,etc.Provision ofascientific basis forevaluating stateof
theenvironment andimproved early warning of
environmental problems .Thisimplies development
ofenvironmental baselines ,indices ,advanced
monitoring andassessment systems ,etc.65
(1)Council Régulation EC/1210/90;OJL120of 11.05.1990

Improved understanding ofbasic environmental
processes andtheimpacts ofhuman activities .
Here ,long-term strategic research isrequired to
elucidate global change ,itspossible impacts and
todefine theconditions forenvironmentally
sustainable development .materials ,newandcleaner processes ,improved
waste management andprevention ofindustrial
accidents .Work inthis area will bedirected
primarily towards thetarget sectors identified in
Chapter 4.
Finally ,therelationships and linkages between
environmental policy andsupporting R&Dmust be
substantial lystrengthened .Inorder toensure maximum
gainfrom R&Dactivities ,improved information flow
andfeedback between R&Dandpolicy formulation
wiIIberequired ,aswell asamore adaptable approach
toR&Dsoastoenable ittorespond more directly and
flexibly tochanging policy requirements .Reciprocally ,
itwillbeimportant todevise mechanisms whereby
policy formulation andimplementation canrespond
tochanges inscientific knowledge andtechnological
capability .Development ofasound basis forregulatory and
market related instruments .Thiswould comprise
essentially pre-normative R&Dconcerning public
health andsafety ,environmental risksandimpact
assessments ,environmental audits ,chemicals
control ,etc.
Development andapplication oftechniques for
prevention ,reduction and mitigation of
environmental impact .This would include
advances inenvironmental biotechnology ,new
7.3Sectoral andSpatial Planning
atlocal level forissues which have limited
geographical impact .Sound land-use andstructural planning canprovide
theframework andtheground-rules forthesocio ¬
economic development andecological health ofa
country ,region orlocality .Intheendeavour toachieve
sustainability ,theplanning functions andthepublic
authorities inwhom responsibility isvested must ensure
anoptimisation ofthe"mix*ofindustry ,energy ,
transport ,human habitation ,leisure andtourism ,
ancillary services andsupporting infrastructure which
isconsistent with thecarrying capacity ofthe
environment .Within theCommunity ,land-use and structural
planning generally follows anidentifiable sequence
starting withnational orregional economic plans and
ending with local physical development and
environmental protection plans .Thesequence has
twoprincipal components -theupstream policies or
plans including control principles andstatements of
intent ,andthedownstream programmes andprojects
which form thebasis ofaction .Given thegoalof
achieving sustainable development itseems only
logical ,ifnotessential ,toapply anassessment ofthe
environmental implications ofallrelevant policies ,
plans andprogrammes .Integrated planning ofthiskindwillbeaparticularly
important element inthedrive foreconomic andsocial
cohesion intheCommunity .Theachievement ofthe
various mixes required indifferent areas and
circumstances and atdifferent population levels
demand anadvanced level ofplanning andco¬
ordination within theMember States .Theintegration ofenvironmental assessment within
themacro-planning process would notonlyenhance
theprotection oftheenvironment andencourage
optimisation ofresource management butwould also
helptoreduce those disparities intheinternational
andinter-regional competition fornewdevelopment
projects which atpresent arise from disparities in
assessment practices intheMember States .
FinaIly,inpursua neeoftheircommitment tointegration
ofpolicies ,theCommission andtheMembers States
have already undertaken -attheMaastricht Summit -
totaken fullaccount ofenvironmental impact andthe
principle ofsustainable development intheformulation
andimplementation ofmeasures .Theestablishment ofanappropriately comprehensive
planning /development /environmental protection
framework callsfortheapplication oftheprinciple of
subsidiarity through decision-making atthemost
appropriate level ,forexample :
atMember State orCommunity level where
national and regional economic development
plans orglobal issues areinquestion ;
atthelevel ofnatural geographical orregional
units where regional development ,pollution or
river-basins areinvolved and forinter-urban
transport ;
0

7.4TheEconomic Approach :Getting thePrices Right
Although thevalue ofmany environmental assets is*makeprovisionintheiraccountsforenvironmental
difficult tomeasure inmonetary terms and ,inthecase risksandfuture environmental expenses ,
ofparticularly important orrareelements should not
bepriced inanyevent ,valuations ,pricing and Useofeconomic andfiscal incentives
accounting mechanisms have apivotal roletoplayin Inorder togettheprices right andtocreate market
theachievementofsustainabledevelopment .Economic based incentivesforenvironmentallyfriendlyeconomic
valuations can help economic agents totake behaviour ,theuseofeconomic andfiscal instruments
environmental impacts intoaccount when theytake willhavetoconstitute anincreasingly important part
investment orconsumption decisions .Where market oftheoverall approach .Thefundamental aimofthese
forces arerelevant ,prices should reflea thefullcostto instruments will betointernalize allexternal
society ofproduaion andconsumption ,including the environmental costs incurred during thewhole life-
environmental costs . cycle ofproducts from source through produaion .Useofeconomic andfiscal incentives
Inorder togettheprices right andtocreate market
based incentives forenvironmentally friendly economic
behaviour ,theuseofeconomic andfiscal instruments
willhave toconstitute anincreasingly important part
oftheoverall approach .Thefundamental aimofthese
instruments will betointernalize allexternal
environmental costs incurred during thewhole life-
cycle ofproducts from source through produaion ,
distribution ,use and final disposal ,sothat
environmentally-friendly products will notbeata
competitive disadvantage inthemarket place vis-^-vis
produas which cause pollution andwaste .Inthis
respea ,twooptions arepossible :apricing approach
andonerelated toquantity .While theCommunity and
theMember States arecurrently engaged intheformer ,
itwillbeimportant tostudy alsotheextent towhich
possible options such astradeable permits could be
utilized tocontrol orreduce quantities .Itwillbeof
increasing importance toensure thattherange of
instruments willbeapplied inacosteffeaive way so
astoavoid unnecessary adjustment costs tothe
economy oftheCommunity tominimise adverse
distributional consequences andtoachieve optimum
environmental benefit Indeveloping such instruments ,
itwill also beimportant toconsider notonly the
potential impaa onthelocal andwider environment
butalsotheireconomicefficiency andregional impact
Afirstimportant category ofeconomic instruments
consistofchargesand levies .They arewellunderstood
andused ,forinstance inthefieldofwater pollution .
They have been developed inthepastprimarily to
create thenecessary funds forclean-up operations and
infrastructures such aswater treatment installations ,
andwillremain important forthese andother similar
purposes suchaswaste disposal .However ,inlinewith
thepolluter-pays principle ,such charges should be
progressively reorientated towards discouraging
pollution atsource andencouragi ngclean produaion
processes ,through market signals .
Responsibility forcharges andlevies onemissions
fromstationary sources traditionally hasbeen ataskfor
national and local authorities .According assuch
charges become more widespread andhave real
environmental impaa and,inconsequence ,generate
greater financial income ,some intervention at
Community level maybenecessary toensure that
charging systems aredesigned inatransparent and
comparable way,andtoensure thatdistortions of
competition within theCommunity areavoided (e.g.
inthecases ofwater andairpollution ),especially
where emissions ordischarges from mobile sources
areconcerned .Among themeasures required tobetaken inorder to
determine environmental costs with aview tomore
environmentally effeaive pricing mechanisms are:
evaluation ofthe natural and environmental
resource stocks oftheMember States ineconomic
terms ;
development ofrenewable resource indicators
forMember States (and,inappropriate cases ,
regions )toshow therates atwhich natural
resources areused and renewed including
availability and useofwater resources ,soil
formation anderosion ,growth andharvesting of
forests ,regional fishpopulations andcatches ,etc;
extension andadaptation ofthetraditional tools
ofeconomic statistics onthebasis ofresearch at
national and European level ,including
modification ofkeyeconomic indicators ,such as
GNP ,soastoreflea thevalue ofnatural and
environmental resources ingenerating current
and future incomes and toaccount for
environmental losses anddamage onthebasisof
assigned monetary values ;
development ofmeaningful cost/benefit analysis
methodologies andguidelines inrespea ofpolicy
measures andaaions which impinge onthe
environment andthenatural resource stock ;
redefinition ofaccounting concepts ,rules ,
conventions andmethodology soasensure that
theconsumption and useofenvironmental
resources areaccounted foraspartofthefullcosts
ofproduaion andrefleaed inmarket prices .Such
measures must include appropriate checks and
controls soastoensure market transparency and
faircompetition .
Tomaintain orimprove enterprise awareness of
environmental issues ,toensure thatallenvironmental
expenses andrisks aretaken intoaccount ,andto
facilitate astewardship funaion ofaccounts on
environmental topics ,enterprises should :
*disclose intheir annual reports details ontheir
environmental policyandaaivities ,andtheeffects
thereof ;
*disclose intheir accounts theexpenses on
environmental programmes (thisrequires aclear
definition ofsuch expenses );67

processes constitute aparticular category ofstateaids
which iscoming intoincreasing use.Such fiscal
incentives canbeveryeffect :veinspeeding upthe
introduction ofclean capital equipment ,andshould
beencouraged tofacilitate thecritical transition
towards sustainability .
Afourth category ofmarket-based instruments tobe
developed inthe Community isenvironmental auditing .
Inthefirstinstance thishastobeseen asaninternal
management toolwhich should indicate performance
onresource management including useofrawmaterials ,
energy consumption ,productivity levels andwaste .It
should highlight areasof risk,indicate performance on
riskprevention andmanagement andaudit levels of
safety andhea'th inthework place .Forshareholders ,
investors ,financial and insurance institutions such
resource-based audits would provide aperformance
indicator asimportant astraditional financial accounts .
Forpublic authorities andthepublic atlarge ,
environmental audits willprovide both acompliance
andperformance indicator which canprovide aboost
tooverall public confidence .
Lastly ,anintegrated Community approach to
environmental liability willbeestablished .Theconcept
of"shared responsibility "hasanimportant dualaspect .
Ontheonehand ,itisimportant toshare responsibility
forpreventing further damage totheenvironment .On
theother hand ,there isalsotheneed toprotect the
common interest intheenvironment bymaking sure
that,ifdamage totheenvironment does occur ,itis
properly remedied through restoration .Liability will
beanessential tooloflastresort topunish despoilation
oftheenvironment Inaddition -and inlinewith the
objective ofprevention atsource -itwi 11provide avery
cleareconomic incentive formanagement andcontrol
ofrisk,pollution andwaste .Asasecond category ,fiscal incentives can exert
considerable influence onpatterns ofconsumption
and behaviour .Environmental considerations are
already being taken intoaccount inthefiscal area
within theCommunity :ready examples include the
differentiated duties being applied bytheMember
States inthecaseofunleaded andleaded petrol ,the
proposal foraCouncil Directive onexcise duties on
motor fuels from agricultural sources 1’1andtheenergy /
carbon tax envisaged inthe Commission
Communication "ACommunity Strategy tolimitcarbon
dioxide emissions andtoimprove energy efficiency"® .
This evolution willbeencouraged over theperiod
covered bythisProgramme with aview toanoverall
modernisation andrationalization offiscal systems to
render them more responsive totheneed toprotect the
natural resource base and theenvironment .Inthis
regard ,itisnow widely accepted aseconomically
more efficient totaxthose activities which damage the
economic resource structure ,including the
environment ,andtoreduce theburden ofthose taxes
which canhave anegative effect onemployment and
investment .Every careshould betaken ,however ,to
avoid increases intheoverall burden oftaxation .
State aids,involving direct andindirect subvention
systems ,form athird category ofeconomic instruments .
TheCommission hasalready adopted aframework for
environmental state aids inorder toguarantee an
orderly system intheCommunity which iscompatible
with the"polluter paysprinciple ".Thisframework will
beupdated totake intoconsideration notonly the
growing importance ofsubsidies forparticular typesof
environmental expenditure ,butalso toensure the
integrity oftheInternal Market
Fiscal déductions toencourage investments in
environmental equipment andclean production
7.5Public Information and Education
Thesuccess ofthedrive towards sustainability will
depend toaveryconsiderable extent onthedecisions ,
actions andinfluence ofthegeneral public .But,while
surveys show ahigh,andincreasing ,level of
environmental awareness among thegeneral public ,
thepublic isconsiderably lacking inessential
information .Inaddition tohaving access toavailable
environmental information under Council Directive
90/313/EEO ,)(duetocome intoforce 31December
1992)andaright toinvolvement intheassessment of
environmental effects ofmajor projects ,itisessential
thatthe citizen beenabled toparticipate intheprocess
ofsetting conditions foroperating licenses and
integrated pollution control ,andbefacilitated injudging
theactual performance ofpublic andprivate enterprises
through access toinventories ofemissions ,discharges
and wastes andtoenvironmental audits .Asregards general information ,acomprehensive
strategy willberequired toinform thepublic atlarge ,
thesocial andeconomic partners ,regional andlocal
authorities andnon-governmental organisations ofthe
objectives andtargets ofCommunity environment
policy andoftheir respective responsibilities and
potential contributions .Thisstrategy willprovide for
thecreation ofstructures facilitating theparticipation
ofcitizens andactors intheCommission 'sactions in
thisfield .These structures could besetuponregional
and/orlocal level ,taking intoaccount theexperiences
ofexisting networks (thecentres forrural information
andthelocal urban initiative centres ).
Theindividual ,asaconsumer ,can make afully
informed andrational choice only iftheproduct
information withwhich he/sheisprovided covers all
68
σ>COM (92)36final ,28.2.1992
SEC (91)1744 final ,14.10.1991
OJN°L 158/56,23.6.90Ш
0)

relevant aspects such asperformance ,reliability ,
energy-efficiency ,durability ,running costs ,etc,andif
thisinformation isgiven inaneutral form ,supported
byeffective anddependable guarantees .The
Community-wide eco-label willmake acontribution
inthisrespect ,butit,too,willrequire tobedeveloped
within theshort -to-medium term andcombined with a
more global approach toconsumer safety and
environmental protection .
Theimportance ofeducation inthedevelopment of
environmental awareness cannot beoverstated and
should beanintegral element inschool curricula from
primary level onwards .
Thestarting point forjoint action bytheEuropean
Community andtheMember States inthefieldof
environmental education isthe Resolution on
Environmental Education oftheCouncil and the
Ministers ofEducation meeting within theCouncil of
24May 198801.TheResolution states -interalia-that:"theobjective ofenvironmental education istoincrease
thepublic awareness oftheproblems inthisfield,as
well aspossible solutions ,andtolaythefoundations
forafully informed andactive participation ofthe
individual intheprotection oftheenvironment andthe
prudent andrational useofnatural resources ".
ThisProgramme callsforaspeeding upofsubstantive
implementation oftheResolution .Without prejudice
totheMember States' prerogatives inthefield of
education ,environmental studies -whether separate
orintegrated intonatural andsocial science studies or
amalgamated with other studies inpreparation for
everyday life(suchascivics ,politics ,industrial relations ,
hygiene andhealth care)-should beincluded inall
primary andsecondary school curricula bytheyear
2000 atthelatest andbelisted asaformal examination
option assoon aspossible after thatdate .Inorder to
work towards those goals itwill benecessary to
initiate ,without delay ,theestablishment ofuniversity
courses and summer-schools ,teacher training
programmes andthepublication anddevelopment of
environmental literature andteaching aids .
7.6Professional Education andTraining
operation ofsewage plants and waste water
treatment facilities ;
environmental impact assessment .Current and projected trends instructural and
technological change ,inmarket supply anddemand ,
andinmarket competition canbeattributed toa
significant degree toauser-driven market which
increasingly isdemanding quality inallaspects ofboth
products andservices .Theresponse tothisdemand is
dictated bythelevelofskills and"know-how "within
themanufacturing andservice sectors .Furthermore ,
empirical data inrespect ofEurope andtheU.S.A.
indicate thatthere isaclose correlation between the
proportion ofpopulation whoundergo ahighstandard
ofprofessional andvocational education andtraining
andregional prosperity ;thatinsuch regions there
tends tobeademand forhigher quality ;andthat
producers ofgoods andservices inthose regions are
competitive inwider ,even global ,markets .
These factors ,among others ,areindicative oftheneed
forneworadditional skiItsortraining inadministrations
andinmanufacturing andservice industries ifboththe
Community 'senvironmental andInternal Market
objectives aretobemet.Specific skills andtraining
requirements emerging from studies (e.g.theFAST
programme )made across theCommunity include ;Intheprivate sector ,additional skills andtraining
required atalllevels ,managerial andoperational ,
include
inmanufacturing industry :research and
development ,process management ,energy
efficiency ,exploitation ofbiotechnologies ,
prevention ,reuse ,recycling andsafedisposal of
wastes ,containment and rehabilitation of
contaminated sites,transport operations ,vehicle
maintenance andfuelconservation ;
inagriculture ,horticulture andforestry :nature
conservation andmanagement ,ecologically
sustainable farming practices ,agricultural and
horticultural advisers ,waste management ,
integrated pestcontrol ,erosion control and
prevention andcontrol offire,
intheservices sector :environment consultancy
(legalandtechnical ),provision anddissemination
ofinformation andknowledge (especial toSMEs ),
environmental impact assessments ,environmental
accounting andauditing ,cleaner andmore
efficient transport andbetter qualitytourist services
andinformation .Inthepublic sector ,
policy ,structural andproject decision-making
andmanagement ;
management ofwater resources ;
energy conservation andwaste disposal inpubic
institutions (hospitals ,power stations ,public
offices ,plant andmachinery );
monitoring ofstandards ofadherence tolegislation
aridoperating conditionsand ofievelsof pollution ;Interms ofoccupations ,theneeds include biologists
andchemists ,geologists andlandsurveyors ,architects
andland-use planners ,civil,mechanical ,electrical
andproduction engineers ,andenvironmental
technicians ,operatives andtraining specialists .69
OJN°C 177,6.7.88

7.7FinancialSupportMechanisms
Within theoverall context ofsustainable development ,
conservation ofnatural resources andprevention of
pollution andwaste andeffective application ofthe
'polluter paysprinciple' thepolicies andactions set
outinthisProgramme should payforthemselves .
Tenaciously pursued ,theyshould increase industrial ,
economic andsocial efficiency andprosperity atno
greater costthan more wasteful current practices .thecontracts between theMember States and the
Commission (asfund managers )require conformity
withenvironmental legislation andassessment ofthe
environmental impact ofprojects .However where
models ofregional development overemphasi zeshort ¬
term economic growth there canbeenvironmental
sideeffects which arenotconsistent with thegoalof
sustainable development .Yetmore emphasis will be
given ,accordingly ,toassessment ofthewider
implications ofplans ,programmes andprojects for
theenvironment andthesustai nability ofdevelopment .Asamatter ofprinciple ,financial interventions from
Community orpublic funds must nothave theeffect of
diminishing thefundamental responsibility ofthe
relevant economic 'actors' andmust notprovide an
alibiforfailure tointegrate theenvironmental dimension
intoproduction processes ,intochoices ofindividual
behaviour and into relevant economic and sectoral
policies andprogrammes .Further ,thefactthatthere
arefinancial interventions must notcreate any
misunderstanding thatsustainable development ismore
expensive orlesscostefficient than alaissez-faire
approach .Forthcoming Review oftheStructural Policies
Inthefurther reform oftheStructural Funds ,the
Community willaimtopromote development which
willbesustainable inpursuance ofArticle 2ofthenew
Treaty .Inthiscontext Fund-assisted development shouId
bebased ontheintrinsic strengths andnatural resources
ofthedesignated regions andbegeared towards high
quality processes andproducts .This implies both a
greater level ofintegration oftheenvironmental
dimension intotheFund processes themselves -with
theenvironment beingtreated asamainstream concern
ofthedevelopment process -aswell asimproved
coordination andsynergy between thedifferent funds .
Such anapproach willbefundamental forthelonger -
termeconomic andsocial cohesion oftheCommunity .Nevertheless ,certain current andprospective financial
mechanisms have ,andwill continue tohave ,a
significant input intotheachievement ofobjectives of
theProgramme .
TheStructural Policies
TheCommunity 'sStructural Funds -that istosaythe
European Regional Development Fund (ERDF ),the
European Social Fund (ESF)andtheguidance element
oftheEuropean Agricultural Guidance andGuarantee
Fund (EAGGF )-areapplied intheCommunity to
strenghten economic andsocial cohesion andbenefit
thepoorer regions oftheCommunity .Amajor reform
oftheir operation wasagreed in1988 ;thefinancial
resources available forassisting theweaker regions
have been both increased andconcentrated onspecific
objectives .Thebudget isbeing doubled inrealterms
between 1987 and1993 ;in1992 itrepresents about
27%oftheoverall Community budget .
Ofthese Funds ,theERDF atpresent makes themost
important contri bution towards economic development
through itsdirect intervention inthefinancing of
productive investments andinfrastructures .Many ofits
interventions have consequences fortheenvironment
Within theERDF ,funds devoted to'environmental
projects' have risen considerably from around 100
MECU peryear in1985-87 tosome 700MECU per
year under thepresent programme (in1991 prices ),
partly asaconsequence ofENVIREG andother
Community initiatives .TheESF,initssupport oftraining
andjob-creation ,andtheEAGGF initsinterventions
onruraldevelopment andeco-farming alsocontribute
tothe protection andimprovement oftheenvironment
Inaddition tothe'environmental' expenditure referred
to,theCommunity Support Frameworks which formInthecaseoftheERDF ,Fund-assisted development
willtakeaccount oftheenvironmental implications .
Member States wi 11beencouraged totakeanintegrated
approach ,taking fullaccount oftheenvironmental
impact atanearly stage intheformulation ofplans and
programmes andavoidi ngenvironmental degradation
thatcould beirreversible orwould require costly
corrective action infuture .
Asregards the ESF,thisProgramme stresses the
importance which attaches toeducation andtraining
aspects ,including indications ofprofessional and
vocational expertise which will beneeded forits
effective implementation .Inthecontext ofthereview ,
andinconjunction with theTask Force onHuman
Resources ,Education ,Training andYouth ,theESFwill
give increased support tojob-creation andtraining
related toenvironmental activities that facilitate
sustainable regional development
Theopportunities andincentives topromote responsible
management ofland ,forest andeco-systems through
boththeEAGGF andESFwillincrease according asthe
Common Agricultural Policy isreoriented towards a
better balanced andmore dynamic management of
rural areas oftheCommunity .Asageneral principle to
beapplied inthelong-term re-structuring oftheCAP ,
entitlement toCommunity support willprogressively
become conditional onexploitation ofagricultural
andother rural resources inanenvironmentally
acceptable way,andeventually inawaywhich70

enhances and improves thequality oftherural
environment andthecountryside ingeneral .
Finally ,asrespects theStructural Funds ingeneral ,
there isaneed formore integrated planning and
networking ,especially where theintegration and
cohesion ofperipheral regions areconcerned -thisis
atheme which willispursued further intheframework
ofthe"Europe 2000 "exercise” 1.projects inthefield ofenvironment thismeans
thattheymust result from aCommunity decision
which implies disproportionate costsforthepublic
authorities oftheMember State inquestion .Inthis
way theCohesion Fund willhelp thepoorer
Member States toeffectively apply Community
environmental legislation .
Thesecond condition isprior adoption bythe
Council ofaneconomic convergence programme .
Implementation ofthis programme will be
monitored bytheCommunity inthecontext of
multilateral surveillance provided forinArticle
104c oftheTreaty .Community Financial Instrument forthe Environment
(LIFE )
While thephilosophical concepts ofenvironmental
responsibility andsustainable development arequite
widely accepted ,they stillremain rather abstract for
thevastmajority ofeconomic actors .Whether as
administrators ,entrepreneurs orconsumers ,theymay
notunderstand how they areexpected totranslate
concepts intoeveryday actions .Inthiscontext ,the
principle tasks ofLIFEwillliein
defining andpromoting models ofproduction and
behaviour which areinlinewiththeprinciples of
sustainable development ;
practical demonstration ofthetechnical viability
andeconomic efficiency ofchosen models and
actions ;
supporting specific demonstrations ,pilotprojects
andhorizontal information ,education andtraining
designed toinfluence theeconomic actors through
theuseofpractical examples ;and,
strengthening administrative structures .TheCommission willbepresenting aproposal inthe
course of1992 foraRegulation ontheestablishment
andoperation oftheFund .
TheEuropean Investment Bank
Environmental protection hasconstituted animportant
criterion forEIBproject selection andappraisal for
most ofthelasttwenty years .In1983 ,aformal
declaration ofintent onenvironmental policy was
made bytheEIBofa"Declaration ofEnvironmental
Policies and Procedures relating toEconomic
Development ",together withtheWorld Bank ,regional
development banks ,UNEP ,UNDPand theCommission
oftheEuropean Communities ;the EIBbecame a
member ofthe Environmental Committee ofthe
International Development Institutions (CIDIE ).
Uptonow ,these types ofactions have been pursued
inarather disparate fashion through acollection of
small-scale financial instruments-MEDSPA ,NORSPA ,
ACE andACNAT .LIFE isdesigned toachieve an
effective integration andincreased efficiency ofthe
foregoing instruments through better co-ordination of
procedures andbetter all-round managementIn1984 ,theBoard ofGovernors laiddown the
foundations ofBank policy enabling ittointervene in
favour ofenvironmental ly-related projects throughout
theentire Community .Since 1988 theBank has
maintained cooperation with theWorld Bank within
theframework oftheEnvironmental Programme for
theMediterranean (EPM).Oneresult ofthisco-operation
istheMediterranean technical assistance programme ,
METAP ,whose objective istofunction asacatalyst for
environmental investment intheregion .Further
opportunities forincreased cooperation areenvisaged
-forinstance ,cofinancing investment within ENVIREG .
Foritsoperating purposes theBank hasadopted an
environmental definition which covers water-related
projects ,solid waste disposal ,airpollution control ,
heritage conservation andcertain urban pollution -
reducing projects .Notwithstandingthis rather restrictive
definition there hasbeen both asharp increase inBank
lending inMember Countries inrecent years (rising to
15%oftotallending in1989)andawidening oftypes
ofenvironmental investment covered .The
environmental content oftheBank 'slending varies
among theMember States (from2%-3%inPortugal
andFrance to44% inGermany ),reflecting ,among
other factors ,theBank'srange oflending possibilities
inthese countries .Institution ofaCohésion Fund
Article 130doftheTreaty onEuropean Union provides
fortheestablishment ,before 31December 1993,ofa
Cohesion Fund forthe making offinancial contributions
toprojects inthefields ofenvironment andtrans-
European networks intheareaoftransport infrastructure .
Thepotential beneficiaries areGreece ,Ireland ,Portugal
andSpain .Theverynature oftheFund presupposes a
highlevelofCommunity intervention (85to90%).The
Cohesion Fund will add anew dimension tothe
economic andsocial cohesion effort .Thenew Fund
willbetothese States what theStructural policies are
totheregions .
Itisenvisaged thatCohesion Fund financing willbe
subject totwoconditions :
Firstly ,theprojects tobeconsidered mustderive
their origins from Community legislation .For 0
niCOM (91)452final ,7.11.1991

Table17:HORIZONTAL MEASURES
ACTIONS OBJECTIVES TARGETS UPTO2000 TIME-FRAME ACTORS
•Community programme for
environmental slansuci
*Nationalstatisticsonenvironment
*RegionalandCommunity statisticsEEA+fiC UMTCOVEMENT
OFDATA-Improvemenl ofBaselinedata 1992=»
1995 MS
1995 EC
-Development ofEnvironmental Indicators *Indicatorsofgeneralprogressandtrends 1995 EC
EC 1997
*NationalandCommunity reportson
thestateoftheenvironment-Regularassessment ofqualityandprogress 1995 MS
2000 EC
•Inventory ofpollutingemissions and
discharges ,andwaste•Publishedinventories (progressive ) EC, 1994=»
Enterprise
•NewRADprogramme Enterprise
+MS+EC-Considérable reinforcementof investmenu
ingeneralenvironment +energyR+D
-Specificprogrammes aslowcarbon
technology ,biomass,andotherrenewable
energies
-Extendedprogrammes onbiotechnology ,
includingitsuseinintegratedpestcontrol
inagriculture
-Expanded programme onclean
technologies ,recycling technologies ,
recyclable andreusablematerials1992/96 2-SCIENTIFIC
RESEARCH
id 1993 ANDTECHNO -
LOGICAL DE-
VELQPMENT
1995 id
id 1993
MS,LAs,EC
MS,LAs,EC•IntegratedRegionalDevelopment Plans
•IntegratedTransportManagement Plans
upto2000
*Integrated CoastalManagement Plans
*IntegratedTransportPlansfor2010
*Environmental ImpactAssessment at
planningandatprojectlevel
*EIAappliedtoERDF-aimed
programmes +projects3.SECTORAL
ANDSPATIALIntegrated socio-economie development
plans1992=»
1994
PLANNING
MS,LAs,EC
MS,LAs.EC
MS,LAs,EC1998
1997
1995=»
ongoing
1993=» MS,LAs,EC
EC 4.GETTING Evaluation ofenvironmental resourcestock•Preliminary guidelines
linkedto“Improvement ofData”1993
EJEAM.C ,MS 1995
RIGHT
MS+EC a)Evaluation and
accounting*“Shadow”GNPtablesshowingnatural
resourcevalues1995=» Development ofrenewable resource
indicators
id 1999=* Modification ofkeyeconomicindicators •FormaiGNPtables
MS*/nd. 1992=» CostArenefu analysis *Development +implémentation ofa
cohérent programme intemalizing
extemalcosts
EC Institutions ofenvironmental
accounting mechanism1992 *Consultations withprofessional
organisations
•Community guidelines 1993
Accountants
*Profess .
Bodies*EC 2000 =» *Parallelaccountsincompanies
ECJvCJndustry
AProf.Bodies
EC+MSDisclosure ofenvironmental issuesinthe
accountsofenterprises
Instruments*Consultation withMS,Industryand
professional organisations
•ECDirective1992/3
1994
MS*EC b)Fiscal
incentives1993 Intégration ofenvironment protection
requirententsirttofiscalpolides*Promotion offiscalincentives for
environment
MS+LAs c)Charges 1993 Improvedtransparency ofchargingsystems *Reviewofmuons!mdlocalleviesandcharges
-collationofdata EC
EC+MS d)Sta!eaids 1992/3 Application ofpolluterpaysprinciple *Comprehensive reviewofStateAids
inenvironment field
EC+MS+
Accounlants
EC+MS,LAs
+Enterprise
A/5+LAS+
Insurance
companiese)Other
economic and
marketrelated
mstramenu1992 -Environmental Auditofallmajorpublic
andprivateenterprises*Directive onEco-audits
Ecoaudits
*Consultations withMS,Industryand
insurance institutions
*Initiationofschemeofperformance
Bondsinrespectofcovenants and
licenseconditions1994
1992/3
1995

Table17:HORIZONTAL MEASURES
TARGUES UPTO2000 OBJECTIVES ACTIONS TIME-ERAME ACTORS
-Integrated liAbilityandjointresponsibility •Directiveoncivilliabilityfordamage
causedbywaste
•Discussion document oncivilliability
andjointresponsibility systems
•AdoptionofECregulation1993=» £C+MSI
1992 EC
I1995EC+MS i
-Deposit/Refundsystems •Progressive unplementaijoo
Reportsonprogrèssandeffeclivenessongoing
1995/8MSJ-nterpr
EC+MS
-Improvedlevelofgeneralinformation S.PUBLIC
INFORMATION•Publicaccesstoenvironminfo
•Regularslate-of-environment reports1993LArMSMC
LAs.MS1995
AND
EDUCATION -Specificinformation campaigns on
selected themes•Waste.energy consumption ,transport
etc.(tobedecidedbyEnvironment
PolicyReviewGroup)1992=>EC,MS.
public
utilities
-ImprovedConsumer information •Ecological labelling
•Integrated EnvironmcntaUConsumcr
Safetylabel1993EC.MS
ECMS.
Standards
Institutes1998
-Integratedenvironment intoallprimary
andsecondary schoolcurricula*Reportoncurrentsituationandproposal
ondevelopments
*Programme ofpédagogie research
•Adoptionofgeneralguidelines
*Préparation ofbooks/leachingaids
•Trainingofteachers
•Integration intoschoolcurricula
•Programme ofseminars ,summer
schools,colloques
•Annualupdateofprogress1992 EC
1992/3MSEdJnsJBC
1993MS
ongoing
1993=>Enterprise
Edite.Insis.
2000MS
1993=>MSXduc .
Insis.
1993 => EC
6.PROFES ¬
SIONAL
EDUCATION
AND-Integration ofenvironmental studiesina
representative proportion ofthirdlevel
institutions•Reportoncurrentsituationforallsectors
•Incorporation ofenvironment studies1992EC
1993=>National
EducJnsts .
•Idemofenvironment faculties id id
-Vocational trainingprogrammes for
technicians ,machineoperators ,agrono¬
mists.forestersandotherappropriate
workers andtrainers•Pedagogic research,preparation of
booksandleachingaids1992=»Educ.Insis.
Enterprise
•Professional trainingcourses,seminars
andworkshopforplanners ,accountants ,
auditors*Co-ordination amongprofessional
institutes ,development ofguidelines
andprocedures1992=>EC♦Prof.
Bodies
-Ongoingprogramme ofcoursesand
seminarsforpolicyplanners,transport
managers ,agricultural advisers,tourism
operators•Idem idid
7.FINANCIAL •Takeaccountofenvironmental impact 1993=» MS.LA». Fullintegrationofenvironmental dimension in
disbursement ofstructuralfunds(witheffectfromtbe
ratificationoftbenewTreaty)EC
MECHANISMS
1992=» EC •Progressive re-oncntation pneelo
incomesupports
*Landmanagement contracts
•RuralDevelopment Programme
•ForestDevelopment ProgrammeFEOGAaidtobeorientated tofavour
sustainable ,integrated farmingandnira1
development1992=»
ProgressiveMS+EC
id
ForestEnter-
prises.MS+EC
EC+MSid
1992 •initiationofLIFE
•Comprehensive reviewandextension
asappropriateLIFEtobedeveloped asa“booster
mechanism’ *for 1995 id
effectiveimplémentation ofenvironment
policy
EC*MS+ 1993-1998 •Specialboostforair,wastewater,waste
treatment etc.NewCohésion Fund
LAs
199203 ECjVfS,
bdustry
Organisations*Compréhensive surveyofdifficultés
andneedsNewfinancialsupportmechanisms to
assistSME’t
•Comprehensive reviewofStateAidsin
environment field1993 EC

Chapter 8:Subsidiarity andShared Responsibility
Theprinciple ofsubsidiarityhas been given aplace of
prominence andgeneral application inthenewTreaty
onEuropean Union .Article Arefers totheprocess of
creating anever closer union among thepeoples of
Europe ,*inwhich decisions aretaken asclosely as
possible tothecitizen Onthebasis Article 3bofthe
new Treaty ,theCommunity will take action ,in
accordance with theprinciple ofsubsidiarity ,only if
andinsofar astheobjectives oftheproposed action
cannot besufficiently achieved bytheMember States
andcantherefore ,byreason ofthescale oreffects of
proposed action ,bebetter achieved bytheCommunity .
Indrawing upthisProgramme ,anattempt hasbeen
made totranslate theprinciple ofsubsidiarity into
operational terms .
Since theobjectives andtargets putforward inthe
Programme and theultimate goal ofsustainable
development canonlybeachieved byconcerted action
onthepartofalltherelevant actors working together
inpartnership ,theProgramme combines theprinciple
ofsubsidiarity with thewider concept ofshared
responsibility .Thislatter concept involves notsomuch
achoice ofaction atonelevel totheexcusion ofothersbut,rather ,amixing ofactors andinstruments atthe
appropriate levels ,without anycalling intoquestion of
thedivision ofcompetences between theCommunity ,
theMember States ,regional andlocal authorities .For
anyonetarget orproblem ,theemphasis (actors and
instruments )could liewith theCommunity /national /
regional government level andforanother with the
regional /local/sectoral leveloratthe levelofenterprise ^
general public /consumers .
Thepractical application oftheprinciple ofsubsidiarity
andshared responsibility willalsoinvolve respect for
thecurrent (Art.130r.4 )andproposed (Art130s.4 )
stipulation thatwithout prejudice tocertain measures
ofaCommunity nature ,theMember States must
finance andimplement environment policy .
Table 18represents anattempt toindicate the
complementarity ofactions atdifferent levels within
anoverall framework ofsubsidiarity and shared
responsibility .Inother tables oftheProgramme the
"actors "column indicates the different actors
considered asmost relevant totheimplementation of
specific measures .
73

Table18:EXAMPLES OFSHARED RESPONSIBILITY
Local+Régional
Authorities(*)MexnberStateand
RégionalGovemmenlsEnterprises EC GeneralPublic/
Consumer
Planning
-Economic and
socialdevelopmentDemand >infraslruc-NGO
turc
85/337/;
EUTJ ofKWI,nol.coramufuca -\
RÄDpogr<ffnroc *,ForalpomtsTrrxoon -EmissioncoctroUEn?.'R&0
i: /trcstnfeBf/l;:ßm%*:*:BSotechrKtlogy .f!::-Physicalplanning Directive EIA-publicpar-
ticipation EEC(EIA)
-Networks Demand -distribution
RAJ2
•Media
h••;■■:■:T-.-ï-Processes Integrated pollutioncontrols
Fiscalincentives Na¬
tionalwastemgtplans-Products Wasteprevention
policie. BSSWfflSSSiConsumer demand
ECO-labels
Communicative
-Information Bissemht»tion
Co^ordinationjAdmitristructures;^EXEunbnatstatisti 1Natìoswl;statistica!
iSj&bwgtïtomifcs®•;chiatton »:ài-'I'^cu!nEf>‘InsUmtft/
stasmenL ;disserrisi|.'mvestmentNGOsconcemed
cidzens,consumera
Остапс/ог^гаДмпс*3
«-:*ея-Лггжтегйа !;-Education
-Training TradesUnions
Market-based
-Codesofconduct
(vol.agreements )
-ResourceMgt(env.
audit)Ownactivityaudit;
operatinglicensesSectoralagreements ;
OwnServiceAuditInvestors ,public,
consumerinfonnalianreçu
P&JûêÛmmS-iLÜd
-Ecological labels
-Financialsupports-
(incLstateaids)ί«
■ννι <d.«idofECtausncsftl
tr&i
Habitatsdirective, Spsnaïpîim*Local
ACNAT,NATURA
2000,RuralDcveloptNormative
-Env.protectionNGOs/publicdemand
forfacilities&qual¬
ityoflife
-InternaiMkt Demandforavoid¬
anceoftradebarriersDemandforconsumer
choice
-Implémentation of
Internat,agrs*«" *-«_
•LeidRôle,WÊÊ *Complemcnury Rôle, -Positionofinfluence
(•)Itisappreciated that,becauseofdifferences intheconstitutional andinstutionalarrangements intheMemberStates,competences are
notsharedinacommonmanner.Accordingly ,asthetitleindicates,thistableisintendedtoprovidetheoriticalexamplesofshared
responsibility whicharenotintendedtoinferferewithexistingdivisionsofcompetences .ThereferencetoRegionalGovernments is
usedtocoversub-national governments suchastheLanderinGermanyandtheregionaladministrations inBegium,ItalyandSpain
whichhavecertainexclusivecompetences inthefieldsofpolicydealtwithinthisProgramme .
Ξ

Chapter 9:Implémentation andEnforcement
Satisfactory implementation andenforcement ofthe
policy ,strategy andmeasures setoutinthisProgramme
atalllevelsof society willbeimperative iftheobjectives
ofenvironmental protection ,sustainability ofsocio ¬
economic activity anddevelopment andtheintegrity
oftheInternal Market aretobeachieved .Ultimately ,
measures designed tofaci Iitatesustainable development
andinvolving alleconomic actors through the
application ofabroad range ofinstruments should be
self-enforcing .Fortheforeseeable future ,however ,
thelikelihood isthattheeffectivenessof implementation
willbeclosely related tothequality ofthemeasures
themselves and ofthearrangements fortheir
enforcement .environmental andconsumer organisations and
relevant Directorates-Generalofthe Commission ;
itisenvisaged thatthisForum will actasan
umbrella organisation ,withspecialist subgroups
setupasnecessary todealwithspecific topics or
issues .Thecommon interest inmoving towards
sustainability andtheneed toincrease levels of
awareness andconsensus intheapplication of
shared responsibility underline theimportance of
thisForum .
ii.ANIMPLEMENTATION NETWORK comprising
representatives ofrelevant national authorities
andoftheCommission inthefieldofpractical
implementation ofCommunity measures ;itwill
beaimed primarily atexchange ofinformation
andexperience andatthedevelopment ofcommon
approachesat practical level ,under thesupervision
oftheCommission .Without prejudice tothe
specific responsibilities andprerogatives ofthe
Commission inregard toimplementation and
enforcement under Articles 155 and 169ofthe
Treaty ,theNetwork canhelp topromote
consistency inthepractical application of
Community policy and rules asbetween the
Member States .This will involve ,inter alia,
exchanges ofinformation ontechnical
developments ,compliance initiatives and
precautionary actions .Member States might also
avail oftheNetwork 'sexpertise orassistance for
advice onlocal ornational compliance
mechanisms ,audits andreporting arrangements .Inthepast,anumber offactors hascontributed to
problems ofimplementation ,including
alackofoverall policy coherence ,partly dueto
anevolving ,sometimes shifting ,agenda asthe
scope ofenvironmental policy grew ,andpartly
because much oftheenvironmental legislation
wasdeveloped inanadhocmanner ;
thenarrow choiceof instruments ,whereby perhaps
toogreat areliance wasplaced onregulation of
the"command andcontrol "type ;
theneed forunanimous agreement within the
Council ofMinisters ,frequently necessitating
political compromise ,hasresulted insome cases
inmeasures which aredifficult toputintopractical
operation ;
thepreponderant recourse toDirectives asthe
form oflegal instrument hasoften given riseto
difficulties intheir incorporation intoquite widely
differing national statutory codes and
administrative procedures with consequential
problems ofinterpretation and practical
implementation ;
management inadequacies atalladministrative
levels ,fromCommunity down tolocal authorities .iii.ANENVIRONMENT POLICY REVIEW CROUP
comprising representatives oftheCommission
andtheMember States atDirector-General level
will beestablished todevelop mutual
understanding and exchange ofviews on
environmental policies andmeasures .Itwillbe
modelled ontheCommittee ofDirectors-General
ofIndustry which has been operating very
effectively foranumber ofyears pastOneofits
essential purposes istofillthegapresulting from
thefact that communications between the
Commission and the Member States on
environment issues have largely been confined to
deliberation ofspecific proposals within the
Counci Iandexchanges inrelation toinfringement
proceedings .
These three dialogue groups will serve ,inaspecial
way,topromote agreater sense ofresponsibility
among theprincipal actors inthepartenariat ,andto
ensure effective and transparent application of
measures .They arenotintended toduplicate thework
ofcommittees established byCommunity legislation
forthepurposes offollow-up inrespect ofspecific
measures ,norbytheCommission inrelation tospecificItisimportant tolearn from these pastexperiences and
totake appropriate steps toimprove thisparticular
aspect ofpolicy.Among thereforms which arerequi red
arebetter preparation ofmeasures ,including improved
consultation arrangements ,more effective integration
withcomplementary measures ,better practical follow ¬
uptolegislative measures ,both administrative and
operative ,andstricter compliance checking and
enforcement .
Inorder toinstitute these reforms ,itisintended to
establish thefollowing adhocdialogue groups :
iACONSULTATIVE FORUM willbeestablished
toprovide forconsultation andinformation
exchange between theindustrial /production
sectors ,thebusiness world ,regional andlocal
authorities ,professional associations ,tradeunions ,i
75

fields ofinterest such asconsumer protection ,tourism Integration ofPolicies
development ,etc.nor byMember States for *Inpursuance ofthe Treaty (Article 130r.2 )andthe
implementation andenforcement ofpolicy atnational objective ofsustainable development ,the
level .Finally ,theywill notsubstitute theexisting environmental dimension will befully
dialogue betweenindustryandtheCommission ,which incorporated intoallother Community policies ;
itisintended tostrengthen inanyevent .
anassessment oftheimplications forthe
environment will bemade inthe course of
drawing upCommunity policies andlegislation
with special care taken intheareas ofinternal
market ,international trade ,industrial ,energy ,
agriculture ,transport ,regional development and
tourism ;Among thepractical reforms tobeundertaken willbe:
Improvement inLegislation
*amore careful choice and preparation of
instruments :thelegislative approach may not
always bethebest choice asafirststep even
though itmayhave anessential roletoplayinthe
longer term; Member States should undertake similar
integration byapplying environmental impact
assessments totheirown plans andprogrammes . *relevant legislative measures andstandards should
benefit fromprior consultation ofthe Consultative
Forum and,before finalisation ofcontent ,should *
besubjected toan"enforceability assessment ";Non-compliance with ECandnational legislation
canresult indamage totheenvironment aswell
astoproperty both inthephysical andinthe
financial sense ;itcanalso create distortions in
competition between enterprises .Inthiscontext ,
theprovisions ofArticle 171ofthenewTreaty in
regard toaction bytheEuropean Court inthe
event ofnon-compl iance ,includingthepossibi Iity
ofimposing alump sum orpenalty payment ,
could have animportant incentive orcorrective
effect .*environmental legislation should incorporate
specific enforcement provisions ,notably where
standards areprescribed ;
*there should beapractical follow-through onall
newlegislation interms oftraining programmes ,
seminars andworkshops ;
Implémentation
*Directives adopted atCommunity level must be Involvement ofthe Public
transposed innational legislation within thetime-*Given their right ofaccess toenvironmental
frames decided bytheCouncil ; information (Directive 90/313/EECP thepublic
must beenabled toparticipate asfully aspossible
*Clean-up programmes and monitoring plans inthedecision making processes forconstruction
agreed inCouncil must beputinplace in authorisations ,operating permits ,emission /
conformity withthetime-frames adopted ; ' discharge licences ,etc;theyhave adirect interest
inthequality oftheirliving environment ,andin
*AllMember States thathave notalready done so addition ,canprovide animportant spurtogood
should establish enforcement bodies and performance bycompanies intheir area-perhaps
procedures toensure fullandequal compliance even asemployees ormanagers ;thisprinciple
withbothlegislative andauthorisation-associated must alsoapply forinformation atthedisposal of
requirements ; Community institutions ;Clean-up programmes and monitoring plans
agreed inCouncil must beputinplace in
conformity withthetime-frames adopted ;
AllMember States thathave notalready done so
should establish enforcement bodies and
procedures toensure fullandequal compliance
withbothlegislative andauthorisation-associated
requirements ;
Anaccessible andefficient complaints facility
should bedeveloped atlocal ,regional andnational
level toimprove confidence between public ,
competent authorities andindustrial orbusiness
establishments .Inthiscontext ,complaints should
beconsidered less anuisance than aresource .
They areanindication toenforcement agencies of
something amiss andcankeep thecompetent
authorities intouch with therealities ofsituations
fromwhich theymaybegeogra phicalIyremote or
which they arenotinaposition tomonitor ona
continuing basis .
Individuals andpublic interest groups should
have practicable access tothecourts inorder toThereporting requirements ofvarious Directives *
and Regulations ,recently rationalized bya
composite Directive onreporting 01,must be
assiduously adhered to;
Because oftheimplications fortherelative
competitiveness offirmswithinthe Internal Market ,
aswel Iasforthepurposes ofapplyingthe"polIuter
pays principle *acomprehensive review offines
andpenalties applied indifferent parts ofthe
Community willbecarried outbefore end-1 993;
Optimum transparency asregards implementation
oflegislation and,inparticular ,asregards *
authorisations foremissions intotheenvironment
must beassured .
76
n)OJN°L377 ,31.12.1991 ,91/692/EEC
®OJN° LI58/56,23.6.90

ensure thattheir legitimate interests areprotected
andthatprescribed environmental measures are
effectively enforced andillegal practices stopped .monitoring implementation ofCommunity measures ,
waspostponed fordecision inthecontext ofareview
tobeconducted after itsfirsttwoyears ofoperation .
However ,asagenerator ofenvironmental data ,asa
body charged with ensuring thequality and
comparability ofdataandasproducer ofstate -of-the-
environment reports ,theAgency willhave akeyrble
toplayintheareaofimplementation andenforcement
inanyevent .Environmental Liability
*theCommission hasalready proposed aDirective
inregard tocivil liability fordamage tothe
environment caused bywaste*” ;
•assoon aspracticable theCommunity will
establish amechanism whereby damage tothe
environment isrestored bytheperson orbody
who isresponsible forthedamage incurred ;care
wi 11have betaken thatthe'pol Iuterpays principle *
isfully respected ;Reports onimplementation
Finally ,theCommission willcontinue toprovide reports
totheCounci I,theEuropean Pari iament andthegeneral
publicon theextent andquality ofimplementation and
enforcement throughout theCommunity .According
asthequantity andquality ofinformation isimproved
inconsequence ofimproved reporting bytheMember
States andavailabilityofmore dependable datathrough
theEuropean Environment Agency ,together with the
potential experience andobservations oftheproposed
Network onpractical implementation ofCommunity
measures ,these reports willserve both asaperformance
indicator andasanincentive mechanism forgeneral
improvement ofimplementation andenforcement .•where theauthor ofenvironmental damage cannot
bereadily identified -forinstance inthecaseof
pollution fromdiffuse sources -other mechanismes
forliability-sharing should bedevised .
Involvement oftheEuropean Environment Agency
Under theterms oftheinstituting Regulation ,theissue
astowhether theAgency should have ar6le in
77
*”O.J.N°C251 of4October 1989.

PART II
The Communities' Role inthe
Wider International Arena
79

TheCommunities' Role intheWider International Arena
Intheearly stages ,Community policy andaction ontheenvironment were mainly focussed onthesolution of
particularly acute problems within theCommunity .Later there wasaclearer recognition thatpollution didnot
stopatitsfrontiers andthatitwasnecessary ,therefore ,tointensify regional andinternational co-operation to
combat transboundary pollution .Inrecent times ,theevolution hasgone astepfurther anditisnowgenerally
accepted thatproblems ofaglobal nature areseriously threatening theecological balance ofourplanet asa
whole .Global issues relating totheenvironment andnatural resources have nowbecome soimportant that,in
therun-up to2000 ,theycould beanimportant determinant oftheways inwhich international relations will
develop -economically ,politically andinsecurity terms .Thisappreciation isnowformally recognized inArticle
130r.1 ofthenew Treaty onEuropean Union which includes among theCommunity 'senvironment policy
objectives thepromotion ofmeasures atinternational leveltodealwithregional orworld wide environment
problems .
Thescale ,scope andnature ofenvironmental andnatural resource problems today ismainly duetothe
unprecedented levelofsocio-economic development during thispresent century ,andparticularly overthe
period since theendofWorld War II.Theworld isonhistory 'ssteepest growth-curve :thiscentury alone ,the
world 'spopulation hastripled ;about four-fifths ofthisgrowth hastaken place since 1950.Over thenext50years ,
population levels areexpected todouble andevenwithonlyaverymodest improvement inliving standards there
could beasmuch asafive-to-tenfoldincrease ineconomic activity touching allthekeysectors ,notably energy ,
transport ,industry ,construction andagriculture .
These trends pose athreat tonations' economic potential ,theircitizens' health ,theirinternal political security
and,inthecaseofglobal warming ,their veryexistence .
IntheDublin Declaration ,theEuropean Council stressed thespecial responsibility oftheCommunity andits
constituent Member States toencourage andparticipate ininternational action tocombat global environment
problems .Itstated that"theCommunity must usemoreeffectively itsposition ofmoral ,economic andpolitical
authority toadvance international efforts tosolve global problems andtopromote sustainable development and
respect fortheglobal commons ".
81

Chapter 10:Environmental Threats andIssues
10.1 Global issues
Fourmajor problems areanincreasing cause ofglobal
concern andcallforacoherent andeffective response
asamatter ofurgency :1991 byUNEP 1”indicates thatthedepletion ofthe
ozone layer over many parts oftheglobe istwice as
serious ashitherto believed .
Biodiversity Loss
Biodiversity issubject toincreasing pressures mainly
duetothedisruption ofecosystems andthedestruction
ofhabitats .According tosome estimates upto100
species could belostevery da/3.Apart from its
ecological implications ,theerosion oftheEarth 's
biological heritage could have serious economic effects
since thepotential todevelop newproducts ,especially
food andmedicines ,isundermined asanimal and
plant species disappear .Climate Change
Emissions from many different human activities are
dramatically increasing atmospheric concentrations
ofgreenhouse gases ,such ascarbon dioxide ,methane
andnitrous oxide .Notwithstanding some scientific
uncertainty ,experts agree thatthese changes inthe
composition oftheEarth 'satmosphere areresulting in
aprocess ofglobal warming with many associated
risks -raising ofsealevels ,climatic disturbances ,
drought anddesertification -which could have
enormous implications forsocial andeconomic life.
Déforestation
Deforestation levels arecausing increasing alarm ,
particularly intropical andsubtropical rain-forest
areas :according toofficial FAO data ,deforestation is
nowprogressing attherateof17million hectares per
annum .This trend can aggravate other global
environmental problems because oftherole forests
play asasinkforC02andasareservoir forbiological
diversity .Inaddition ,about 2,5million native
inhabitants oftheforest areas depend ontheir natural
surroundings forfood ,fuel,furniture andclothing .Ozone Layer Déplétion
Abroad scientific consensus hasemerged thatseveral
man-made chemicals especially CFCs -areresponsible
forthedestruction ofthestratospheric ozone layer
which protects theEarth 'ssurface from ultraviolet
radiation .This isone ofthefew areas where a
comprehensive remedial strategy including legal and
financial measures -hasbeen developed .Now however
thesituation appears tobemore grave thanpreviously
thought .Scientific evidence published inDecember
10.2 Problems ofRegional orLocal Concern
,deterioration ofthemarine Central andEastern Europe
>nanddesertification ,unsound Inmany parts ofCentral and Eastern Europe
asalofhazardous wastes and environmental degradation isextremely severe .Past
rialrisks ,rapid urban growth ,socio-economic structures andpolicies inculcating
iterresources etc.pose grave centralised planningandabsenceofpublicparticipation
;swhich havetobefaced upto have contributed totheemergence ofasituation
ridifsustainable ,ecologically characterized byinefficiency ,wasteful practices and
obeachieved .Ofcourse ,the highpollution levels ,
eproblems varyaccording the
nddemographic situation in TheDeveloping Countries
Butitisinthedeveloping countries thatenvironmental
problems aremost serious .Soildegradation and
desertification ,destruction ofhabitats ,over-exploitation
xneprogress hasbeen achieved ofnatural resources ,deterioration ofhuman settlements
ictypes ofpollution and anddegradation offresh water resources rankamong
ition ,butthere arestillmany thedeveloping nations' most pressing environmental
ichwillhave tobeurgently problems .Population pressure andpoverty arekey
?dinrespect oftheCommunity factorsintheemergenceofunsustainabledevelopment
:rs).Itisclear however thatthe patterns inmany ofthese countries .Population growth
:ountries willhave tofacewill places burgeoning demands ontheir fragile resource
itial change inconsumption baseforthe provision ofbasic needs :anadequate diet,
etheir share intheuseofthe potable water ,energy ,shelter andmaterial goods .At
ces,while atthesame time thesame time,thedireeconomic position inwhich
ovement ofthequality oflife.they findthemselves may force these countries toAtmospheric pollution ,deterioration ofthemarine
environment ,soilerosion anddesertification ,unsound
management anddisposal ofhazardous wastes and
toxic chemicals ,industrial risks ,rapid urban growth ,
degradation offreshwater resources etc.pose grave
problems andchallenges which havetobefaced upto
inmany partsoftheworld ifsustainable ,ecologically
sound development istobeachieved .Ofcourse ,the
scale andextent ofthese problems varyaccording the
particular economic anddemographic situation in
each region orcountry .
Developed Countries
IntheOECD countries some progress hasbeen achieved
incombating specific types ofpollution and
environmental degradation ,butthere arestillmany
outstanding issues which willhave tobeurgently
addressed (asisindicated inrespect oftheCommunity
inthepreceding chapters ).Itisclear however thatthe
main challenge these countries willhave tofacewill
betoeffect asubstantial change inconsumption
patterns soastoreduce their share intheuseofthe
world 'snatural resources ,while atthesame time
ensuring asteady improvement ofthequality oflife.
82
I01 UNEP :Scientifîc A&sessement ofOzone Déplétion ,17.12.1991
“ Whereas only 1Smillion species areknown today ,some estimates putthetotalnumber ofpossible species at10times thatamount .
Thedaily lossrateindicated above hasbeen estimated onthebasis ofthishigher Figure fortotalspecies .

adopt short-term ecologically harmful strategies inthe
endeavour toincrease foreign exchange revenues
needed toservice immediate needs .Lackofadequate
institutional andregulatory controls ,combined with
thelimited availability oftechnical ,human andfinancial
resources exacerbates local andregional difficulties
andproblems .
83

Chapter 11:International Co-operation
Itgoeswithout saying thatnosingle nation alone ,norgroup ofnations ,canprovide effective solutions tothese
problems .Rather ,itisessential tosecure ahighdegree ofinternational cooperation andmutual understanding
between nations andgroups ofnations iftheworld community istohave anyrealchance offinding justand
sustainable solutions andofachieving both intergenerational andintragenerational equity -notonly in
environmental terms butalsoeconomically andpolitically .
Over thepasttwenty years ,theCommunity hasbeen playing animportant partininternational action inthefield
oftheenvironment .TheCommunity isacontracting party tosome 30conventions andinternational agreements ,
andisactively supporting thework ofdifferent international andregional institutions ,such asUNEP ,UN-ECE ,
OECD andtheCouncil ofEurope .Inpursuance ofitsobligations under theTreaty ,asamended bytheSingle
European Act,andunder Article 130r.1 ofthenewTreaty onEuropean Union ,theCommunity 'sinvolvement
ininternational environmental action willbestepped upover theperiod covered bytheProgramme .
11.1 TheCommunity 'sPosition ontheMajor Issues
iate change ,theCommunity 's inorder tomaintain their evolution potential ;the
bilise C02emissions at1990 levels diversity ofthespecies themselves ;andlastly the
/vithfurther reductions thereafter isvarietyofthe ecosystems inwhich theyaretobe found ,
itionintheongoing negotiations to Ex-situ conservation should beregarded asa
lobalConventiononclimatechange .complement toin-situ conservation andnever asa
complementary protocols todefine substitution toit .Theconvention onbiological diversity -
getsandcommitments oncarbon should alsoaddressthe questions concerning access to
ks",particularly forests ,onthebasis biogenetic resources andcontrol ofbiotechnological
rkmust also beaccelerated .The risks .Asregards climate change ,theCommunity 's
commitment tostabilise C02emissions at1990levels
bytheyear2000 with further reductions thereafter is
thebasis foritsposition intheongoing negotiations to
draft aframework global Convention onclimate change .
Theelaboration ofcomplementary protocols todefine
specific global targets andcommitments oncarbon
emissions and"sinks",particularly forests ,onthebasis
ofsuch framework must also beaccelerated .The
Convention should setanultimate global objective of
stabilizing greenhouse gasconcentrations atalevel
that would prevent dangerous anthropogenic
interference with theglobal climate ,within atime
frame sufficient toallowecosystems toadapt natural ly.
Itshould also take into account thecommon ,but
differentiated ,responsibilities oftheParties ,recognizing
thatthemanner inwhich theywillhavetoimplement
their commitments may depend ontheir level of
development andgreenhouse gasemissions .The envisaged declaration atUNCED onthe
management anddevelopment ofallforests -temperate ,
boreal andtropical -should incorporate acommitment
toconclude aninternational Convention onforests at
theearliest possible time .Inaddition theactive
participation oftheITTO andGATT willbenecessary
inorder toaddress theparticular issue ofinternational
trade intropical timber with aview toreconciling
environmental imperatives and legitimate trade
activities inthemeantime .Assistance intheforestry
sector requires co-operation andcoordination .A
revamping oftheTropical Forestry Action Plan,with
anemphasis onacountry-driven rather than adonor -
driven approach ,will help countries toplan and
manage their own forest resources inasustainable
way .TheCommunity isacontracting party totheVienna
Convention fortheprotection oftheozone layer and
totheMontrea IProtocol onsubstances thatdeplete the
ozone layer .TheCommunity hasdecided tointroduce
unilateral control measures which aremore severe
than those intheProtocol .Inview ofthenew scientific
evidence available theCommunity would support a
bringing forward ofthephasing-out schedule agreed
inJune 1990 ,andurge allparties totheMontreal
Protocol toadopt more stringent measures along the
linesoftheCommunity regulation .
Theconvention tobeadopted onbiological diversity
atUNCED should recognize thattheconservation of
biological diversity forthebenefit ofpresent and
future generations isacommon responsibility of
mankind ,andshould ensure itsprotection atthree
different levels :genetic diversity within each species ,Inconformity withthemandate given bytheEuropean
Council andtheG-7economic summit ,theCommission
haslaunched apilotproject fortheconservation ofthe
largesttropical forest oftheworld .Thisisanexceptional
initiative towhich theCommission isparticipating
with theBrazilian Government andtheWorld Bank ,
andinvolving atotalamount of250 million USdollars .
Thisenables theCommunity toadopt apositive stance
intherun-up totheUNCED Conference (Rio,June
1992).Itishoped thattheresuItsoftheprogramme can
besuccessfully applied toother regions .
84

11.2Other Priority Issues ofMajor International Importance
TheCommunity isintheprocess offormally adopting TheCommunity should strengthen itsinvt
anewregulation tobring itslegislation intolinewith allrelevant initiatives toprotect region ;
theexisting "Prior Informed Consent "procedures ininternational water courses .Inaddil
thecaseofinternational trade intoxic chemicals and participation inexisting agreements forthe
pesticides .The elaboration oflegally binding ofthe Mediterranean andtheNorth Sea,the <
international agreementsaimedatupgradingthestatus intends soon tobecome acontracting p
oftheUNEP London Guidelines fortheexchange of Helsinki Convention ontheprotection of
information onchemicals ininternational trade ,asenvironmentintheBalticSeaArea.Itisalsop
wellasoftheFAO Code ofConduct ondistribution of inthenegotiations fortheeleboration ofa
pesticides would mark amajor step forwards .The convention ontheprotection anduseoftrar
establishmentofPriorlnformedConsentprocedurestoreduce water courses andinternational lakes ,as
therisks associated tointernational trade ingenetically number ofagreements onseveral European
modified organisms would alsobehighly desirable . including theDanube basin .AconventionTheCommunity should strengthen itsinvolvement in
allrelevant initiatives toprotect regional seas and
international water courses .Inaddition toits
participation inexisting agreements fortheprotection
ofthe Mediterranean andtheNorth Sea,theCommunity
intends soon tobecome acontracting party tothe
Helsinki Convention ontheprotection ofthemarine
environment intheBaltic SeaArea .Itisalso participating
inthenegotiations fortheeleboration ofaframework
convention ontheprotection anduseoftransboundary
water courses andinternational lakes ,aswell asofa
number ofagreements onseveral European riverbasins ,
including theDanube basin .Aconvention ontheElbe
wassigned bytheEuropean Community together with
Germany andtheCzech andSlovak Federal Republic
in1990 ,andoneontheOder willbesigned shortly .
TheCommunity isactively supporting ,through its
MEDSPA programme ,theEnvironmental Programme
fortheMediterranean launched jointly bytheWorld
Bank andtheEIB.Thisplanprovides agood example
ofinterinstitutional co-operation fortheprotection of
theenvironment which could beextended toother
regions .Asregards hazardous wastes ,efforts willbedirected
towards ensu ringthewidest possible application ofthe
provisions oftheBasle Convention ,andtowards the
adoption ofaspecific Protocol totheConvention on
liability andcompensation .Atthesame time ,the
export ofhazardous wastes tocountries thatdonot
have thefacilities totreat anddispose ofthewastes
under thesame stringent conditions asapply inthe
country oforigin should bebanned inaccordance with
theLom£ convention and other relevant regional
conventions .
11.3 Global Partnership
Theongoing negotiations onglobal environmental
issues areincreasingly demonstrating thatajointeffort
byboth industrialised anddeveloping countries is
required toestablish andexecute acoherent and
effective strategy torespond tothese challenges .Its
scientific andtechnological co-operation must be
strengthened inorder toreinforce endogenous technical
capacities ,flowofknow-how andtechnologies must
beaccelerated with theactive involvement ofall
relevant actors ,particularly thebusiness community .resolution ofenvironmental problems ofglobal
significance indeveloping countries ,although its
structure andprocedures should bedeveloped and
adjusted soastotakeintoaccount theneeds ofthe
participating partners .TheCommunity ,assuch ,should
beparty totheGEFinorder tooptimize efficiency in
theapplication ofCommunity funds already committed
forglobal andenvironment-related projects .
Recent experiences have shown that trade and
environment related issues arebecoming increasingly
important asenvironmental policies andstrategies are
strengthened andextended atboth national and
international level .Against thisbackground ,itis
essential toaccelerate thedialogue ontheinterli nkages
between environmental andtrade policies inallrelevant
international fora,especially intheGATT .Thisdialogue
should beoneofthemain priorities onthepost-
Uruguay Round agenda ,andrecognizingthat unilateral
useoftrade instruments forenvironmental purposes
should beavoided inprinciple ,should focus onthe
roleofinternational trade inpromoting sustainable
development .Highpriority must beattached tothecreation ofnew
and additional financial resources tocover the
supplementary costs which might fallondeveloping
countries inconsequence ofinternationally agreed
measures toprotect theglobal environment .Inits
conclusions onUNCED of12December 1991 ,the
Environment Council recognised that new and
additional financial resources areneeded toassist
developing countries todealwithglobal environmental
externalities .Itwas also stressed that theGlobal
Environmental Facility (GEF)should play aleading
role asthemultilateral financial mechanism inthe
85

11.4 Regional Co-operation
Itisparticularly important tostrengthen regional oncivilliability andcompensation forenvironmental
cooperation totackle specific transboundary problems ,damage .
Theintroduction ofenvironmental considérations into
regional co-operation instruments and the Inthiscontext ,theCommunity must actively support
establishment andeffective enforcement ofappropriate regional initiatives inthese areas ,especially within the
legalagreementsare needed topreventthetransposition UN-ECEand theCouncil ofEurope ,byparticipating in
ofenvironmental problems ortransfers ofpollution thenew convention onenvironmental impact
from onecountry toitsneighbours .Ahigh priority assessment inatransboundary context ,inthe
shouldthereforebeattachedtotheadoptionofeffective negotiations onprevention and control of
rules forthemanagement andprotection ofshared transboundary effects ofindustrial accidents and
environmental resources fortheprevention of deliberations oncivilliability fordamage resulting
detrimental transboundary impacts ,andagreements from activities dangerous totheenvironment .
11.5 Institutional Issues
Thesolution oftheemergingenvironmental challenges
requires theimprovement andstrengthening ofexisting
international institutions ,inparticular UNEP ,aswell
asenhanced coordination between them toensure
optimum useofresources .
Particular emphasis should beputonachieving a
better scientific understanding ofecological processes
andonimproving thecollection anddissemination of
environmental information ,with aview toproviding a
sound basis forinternational action inthisfield .Tothis
endthepossibility ofcreating aninternational network
ofenvironmental agencies should beconsidered .Finally ,itmust besaidthattherapid development of
international environment lawwhich hastaken place
overthepasttwodecades hasnotaIways been matched
byacorresponding effort toimplement theexisting
conventions and agreements .Forthis reason ,itis
essential toestablish appropriate mechanims tomonitor
compliance with regional and international
environmental agreements .Questions relating to
prevention andsettlement ofenvironmental disputes
have alsotobeaddressed ,ensuring thepartici pation of
allrelevant international actors .
86

Chapter 12:Bilateral Co-operation
Environmental concerns arenowbeing reflected inthebilateral co-operation links established between the
Community anditspartners allovertheworld .Co-operation withother industrialised countries ,with aview to
achieving abetter coordination ofenvironmental policies andamore effective response tocommon environmental
challenges hasbeen steadily increasing particularly through active participation inthework carried outbythe
OECD .Atthesame time ,theexisting mechanisms forconsultation andexchange ofinformation on
environmental issues between theCommunity anditsmajor industrialised partners ,namely USA ,Canada ,Japan
andAustralia ,need tobesubstantially reinforced .Inthepan-European context ,theagreement ontheEuropean
Economic Area calls foraprogressive convergence ofenvironmental policies intheCommunity andinEFTA
countries .Thisconvergence should beprogressively reflected ininternational fora,where thepositions adopted
byboth groups ofcountries already reflea similar concerns andobjeaives .
Environmental co-operation withindustrialised countries should bereinforced andextended .Itisparticularly
important toachieve acloser convergence ofenvironmental policies ,especial lyasregards those measures which
might have asignificant impaa onthecompetitive position ofindustry .Itisessential toavoid thatthe
implementation ofinvolving environment policies would have adetrimental effea onthecompetitiveness ofa
country orofagroup ofcountries vis-it-visitsindustrialised partners .
Itisclear however thatparticular priority should beattached tothereinforcement ofenvironmental co-operation
withdeveloping andCentral andEastern European countries ,inview oftheextremely severe environmental
situation these countries areconfronted with .
12.1 Developing Countries
TheAfrican ,Caribbean andPacific (ACP )countries
AtCommunity level ,asignificant effort hasbeen
undertaken overthepastyears toincrease theresources
available forco-operation with developing countries ,
andtomake them more concessional .Acomprehensive
co-operation relationship withAPCcountries hasbeen
established since 1963 .Environmental proteaion and
sustainable development areplaying anincreasingly
important partinthisrelationship .These issues areat
thevery coreoftheLom£ IVConvention which was
signed inDecember 1989 andcame intoeffea in
September 1991 {1).TheConvention stresses that :
'development shall bebased onasustainable
balance between itseconomic objeaives ,the
rational management oftheenvironment andthe
enhancement ofnatural andhuman resources ...
priority must begiven toenvironmental proteaion
andtheconservation ofnatural resources ,which
are essential conditions forsustainable and
balanced development from both theeconomic
andhuman viewpoints ...co-operation shallentail
mutual responsibility forpreservation ofthenatural
heritage.'TheCommunity iscommitted toassisting developing
countries inaddressing theincreasingly grave
environmental problems they faceandinachieving
sustainable development .Atpresent ,theCommunity
and itsMember states contribute about 47% oftotal
official development assistance ,representing 0,45%
ofGDP (overtwice thepercentage offunds provided
byeither theUSA orJapan ).TheCommunity and
Member States willcontinue tointensify their efforts :
apart from theadditional financial resources which
willberequired topromote thedeveloping countries'
participation inmeasures aimed atthesolution of
global environmental problems ,itisnecessary to
increase official development aidandtomobilise new
financial resources ,especially private ones ,tofinance
sustainable andenvironmentally sound development
programmes andprojects .TheCommunity andits
Member States reaffirmed inDecember 1991 their
commitment toreach theaccepted UNtarget of0,7%
ofGNPforoverseas development aid,inorder toassist
developing countries intheimplementation of
sustainable development policies atthenational level .
Furthermore ,coordination between Community aid
andtheindividual bilateral programmes oftheMember
States hasbeen strengthened overtime toensure a
coherent andeffaive response topartners’ needs .The
Community isalsoworking towards ever-closer
coordination over long-term aidprogramming inthe
belief thatitspartners should notbefaced with
conflicting advice ,priorities andadministrative
procedures from thevarious donor agencies within
Europe .Such coordination alsoextends toother
multinational donor institutions .Aspecific titleoftheConvention liststhemainprinci pies
andpriorities forACP/ECenvironmental co-operation ,
andincludes provisions forthesaeening ofallprojeas
andprogrammes fortheir environmental impaa ,on
thefurnishing ofadequate information onpesticides
andother toxic chemicals ,andmeasures prohibiting
theexport ofradioaaive andhazardous waste fromthe
Community totheAPC States .
87
üjOJN*L229 ,17.M i9>

FIGURE 10:DEPOSITION OFSO,AND NOxFROM ALLEUROPEAN SOURCES INEXCESS OFCRITICAL LOADS IN1990
Й1ν'·1
RIVM/CCE
Data :
exCL.s1990
Emiss.Europe
Reuion :
EUROPE
*'4 s x
•n
} \ PT~~1 fcOEXCEEDANCE
Kl s 20000
I IS 50000
I Is 100000
s 200000
Hfl s 10000 00
Unit :eq/lia.yrlS
1 £~\*□5ild %ξ. ss
ηm
Si
©/4I
I
a I *
Sli
l>.Hf 4.f».1991
kv-m.»rk r\c.C'r»l.l.«»i«l **
1990 KmisvKiimpr/
FIGURE 11:DEPOSITION OFSO,ANDNOxFROM EUROPEAN SOURCES INEXCESS OFCRITICAL LOADS IN2000 ONBASIS OFTHE
EC"HIGH PRICES' SCENARIO AND THE EXPECTED REDUCTIONS INTHE OTHER EUROPEAN COUNTRIES
minPTJitêfÊli•;rt. RIVM /CCE»
Data :
exe.I%Cl.or
HP-dcp .in2000
Region :
EUROPEm \..ц
>
/
/
К5. I
r NOEXCEE0ANCE□/«y200X St
»
iI
EH3 4500 00;
1000 00 S3ï
77 А 2000 00 i
\
fcAétfïSBl7000.00i
m Unil :eq/hayr/§\:
a
IXxiM-lïlc :•luinhiiutl *
Uitc :27.11.1991 I
Hvin ork:mCl.CNCCSS O
Hl'-hurup .drpn .ilt2IMNI
88

Asforthefinancial resources ,theCommunity will
make available toitsACP partners within thecontext
ofLom6 IVConvention ,12.000 MECU forthemost
partintheformofasubvention ,phased over aperiod
of5years .Between 1986and 1989,230projects for
combatting desertification were financed amounting
to1.700MECU .Tothis,onemust addprojects forthe
management ofmarineresources ,forthepromotion of
renewable energies andother similar interventions .
Following thefirstassessment ofindicative programmes
ofLome IV,itisexpected thatanamount of400MECU
perannum will beallocated toenvironmental
programmes .fortheallocation offunds under thebilateral financial
protocols (1.075 MECU inbudgetary appropriations
and 1.300 MECU inElB'sloans ).MEDSPA ,an
environmental funding programme which enables
expenditure ontechnical assistance innon-Community
Mediterranean countries can also contribute inthis
area .Taken together ,theabove elements comprise a
coherent setoffinancial instruments which could
significantly contribute toimplementing the
commitments andobjectives agreed bytheriparian
States ,theCommunity ,theEIBandtheWorld Bank
when adopting theNicosia Charter (1990).
TheQuestion ofPriorities
Although thesetting ofpriorities forcooperation inthe
field oftheenvironment with ourAPC ,ALA and
Mediterranean partners must betheresult ofabilateral
dialogue which takes account ofthespecific needs
andpriorities ofeach country ,itisclear that for
environmental co-operation towork effectively
particular emphasis must beputoninstitution building
andontheimprovement ofendogenous technical
capacities inthedevelopi ngcountries .Noprogramme
ofassistance willbesuccessful iftherecipient country
lacks theskills ,management ,andorganizational ability
toformulate andimplement appropriate environmental
protection andsustainable development policies .The
reinforcement ofscientific andtechnological co¬
operation with developing countries isofvital
importance ;existing programmes forjoint research
andtrainingin theenvironment anddevelopment field
should becontinued and extended .Intheallocation
offunds andinthechoice ofprojects ,highpriority
should also beaccorded toprogramming which are
crucial forthedevelopment process ,such asenergy
efficiency and development ofrenewable energy
sources ,combating andreversal oflanddegradation ,
desertification anddeforestation ,andprotection and
management offresh water resources .TheAsian andLatin American (ALA )countries
Theevolution intheenvironmental dimension inthe
Lom£ Conventions hasitsparallel intheevolution in
policy orientations governing co-operation with the
ALAcountries .Under newguidelines established at
thebeginning of1991 ,environmental protection is
listed among thepriority areas forco-operation .At
least 10% ofthetotal amount available fortechnical
andfinancial co-operation with ALA countries (2750
MECU intheperiod 1991/95)must beallocated to
environmental projects .Thenewguidelinesalso stress
theneed tointegrate environmental evaluation inthe
development process asawhole ,with theaimof
ensuring long-term protection ofthenatural resource
base andsustainable development .
TheNon-Community Mediterranean Countries
Similarly ,therenewed policy orientations inrespect of
co-operation with non-Community Mediterranean
Countries fortheperiod 1992/1996 foresee a
reinforcement ofregional co-operation inthefieldof
theenvironment .Regional projects inthisarea -e.g.
fight against marine pollution and management of
coastal areas -will beimplemented bymeans of
horizontal co-operation outside bilateral agreements .
Animportant partoftheMediterranean horizontal
allocations of230 MECU will bedevoted to
environmental projects including ,inparticular ,
demonstration andtraining projects .TheElBisexpected
toallocate some 1.800MECU inloans totheregion
coveri ngtheentirerange ofprojects proposed ,including
environmental projects referred to.Inaddition ,
environmental protection isoneofthemain prioritiesFinally ,theCommunity will establish appropriate
environmental safeguards atboth programme and
project levels ,asrecognized ,interalia,intheLom£ IV
Convention andintheResolution onenvironment and
development adopted bytheDevelopment Council in
May 1990"1.
12.2 Central andEastern Europe (CEE)
Environmental degradation inmany CEE regions is
severe ;insome areas thedamage already incurred
may beirreversible .Although theextent andtypeof
degradation varies from country tocountry ,andfrom
region toregion ,common problems prevail .These
problems include extensive acidraindamage toforests
(upto75%ofPolishforests aresaidtobeaffected ),and
thepoisoning ofcomplete river systems (thewater of
theVistula isunfit even forindustrial use).There isa
permanent high riskofserious industrial accidents
particularly inthenuclear andchemical fields .Themomentous political changes inCentral andEastern
Europe have hadamajor impact ontheinternational
political agenda ,withenvironmental issues featuring
veryhighonthelistofpriorities fordiscussion .The
improvement ofenvironmental standards andthe
protection ofhuman health andqualityofIifehasbeen
highlighted bythenewdemocratic governments asa
priority tobeaddressed inparallel withtheprocess of
economic reform and liberalization .
89
01Council Resolution 6723/90of29.5.1990

Many oftheproblems have aregional ,transboundary
dimension :theVistula basin covers most EastEuropean
countries ,theElbe crosses theCzech and Slovak
Federal Republic andGermany ,theDanube basin
covers most ofthesouthern countries :their pollution
spreads intotheBaltic ,theNorth SeaandtheBlack
Sea.Figure 10indicates therelative impact of
depositions ofSO^andNOx inEurope resulting from
emissions from Europe asawhole in1990 .The
importance oftaking apan-European view inthecase
ofthese depositions canbededuced from Figure 11
which indicates theprojected depositions in2000 on
thebasis ofthemost stringent scenario fortheEC(see
''acidification' )andexpected reductions inCentral
and Eastern European countries (based onpresent
undertakings ).andtechnology .Thisstrategy provides thefoundation
forthe1991 PHARE Environment Programmes for
Poland (35Mecu ),Hungary (10Mecu ),Roumania (2
Mecu ),Bulgaria (15Mecu )andtheCzech andSlovak
Federal Republic (5Mecu ).
Inview ofthetransboundary nature ofmost
environmental problems ,thefirstregional environment
programme under PHARE ,with aCommunity
contribution of20Mecu ,waslaunched in1991 .This
programme includes initiatives fortheDanube Basin ,
theBlack Triangle ,theextension ofCORINE activities
toCEE ,aReport ontheState oftheEnvironment in
Europe andapplied research .
Nuclear Safety andRadiation Protection
Under thePHARE Environment Programme ,15Mecu
have been allocated from the1991 budget toa
Regional Nuclear Safety Programme .TheTechnical
Assistance Programme fortheformer USSR countries
includes anenergy sector programme which provides
53MECU towards themanagement andsafety oftheir
nuclear installations .More wide-ranging possibilities
willbeoffered bytherecent co-operation agreement
with theformer USSR countries onnuclear safety as
well asfrom theEurpean Energy Charter and
consequential Protocols .Association Agreements
On31December 1991 theCommunity concluded
Association Agreements with Poland ,theCzech and
Slovak Federal Republic andHungary .They provide
thelong-term framework within which relations
between theCommunity and these countries will
develop includingenvironmental co-operation .Similar
Agreements withRoumania andBulgaria arecurrently
being negotiated .Trade andCo-operation Agreements
with theBaltic States andAlbania ,which will also
contain environmental provisions ,areinpreparation .
Looking totheFuture
Thetaskfacing these governments ismountainous .
Substantive ,lasting ,progress willonly bepossible
with assistance from theoutside ,especially from the
Community .During theperiod covered bythecurrent
Environment Sector Strategy major changes inpolicy
will bedetermined ,institutional and regulatory
frameworks andcapabilities strengthened ,andthelink
between environmental and economic reform
reinforced .Butthefinancial investment needed to
reduce pollution tocritical load levels andtomove to
thesustainable useofnatural resources inCEEwill
require resources which areclearly wellbeyond those
available under the PHARE and other G-24
Programmes .PHARE Environment Sector Strategy and Regional
Programmes
Since thevery beginning ,environmental protection
hasbeen anintegral partoftheCommunity 'sPHARE
programme ofassistance foreconomic reform inCentral
andEastern Europe .Originally geared tohelpPoland
andHungary ,theprogramme nowincludes theCzech
andSlovak Federal Republic ,Roumania ,Yugoslavia
andBulgaria .
The 1990 PHARE environment programmes were
launched inPoland (22Mecu ),Hungary (25Mecu ),
theCzech andSlovak Republic (30Mecu )andinthe
ex-GDR (20Mecu ).Since these programmes compri sed
arelatively large number ofdifferent project activities ,
PHARE -financed technical assistance teams were set
upintherespective Environment Ministries toassist
withprogramme preparation andimplementation .The
experience ofthePF1ARE 1990 programmes ,based
largely on'project shopping lists' ,underlined the
need foramore strategic approach totheenvironmental
problems oftheregion .Consequently ,aswemove towards theyear2000 ,it
willincreasingly betheprivate andpublic sectors in
the CEE countries themselves that must assume
responsibility forgenerating therequired investments
needed toreduce pollution atsource .Thiswillrequire
fundamental changes inpricing policies ,substantial
investments innewequipment andtechnologies ,and
even thecomplete closure ofsome oftheveryworst
polluting production units .Extensive credits and
forward-looking lending policies onthepartofboth
national andinternational banking institutions willbe
called for.Inthiscontext theroleoftherecently
established European Bank forReconstruction and
Development (EBRD )willbecrucial ;indeed theEBRD
hasalready launched itsfirstlending programmes in
theenvironment sector intheCEE .Consequently an'Environment Sector Strategy for
CEE' ,covering a3-year period ,prepared bythe
Commission ,hasbeen endorsed byboth theG-24
Environment Working Group and theEnvironment
Ministers' meeting atDobris Castle injune 1991 .This
strategy identifies anumber ofpolicy objectives and
priorities including public awareness building ,
strengthening andexpansion ofthe institutional ,policy
andregulatory frameworks andtransfer ofinformation90

T»ble19:INTERNATIONAL ENVIRONMENTAL ISSUES
OBJECTIVES TARGETS UPTO2000 MEASURES REQUIRED PRINCIP1-E ACTORS
1.Préservation oi
Global Bio-
diverrity*nofurtherdeterioration ofecosystems
andhabitatsnecessary tomaintain
diversityofspeciesandwithinspecies*GlobalConvention onBiodiversity International Community
•National and Regional Strategies on
Biodiversity
-préventive approach ,EIA
-inventories
-protection offorests,wetlandsandother
species-richecosystems
*Increased technical andfinancial Assistance
toDeveloping Countries
•Valuationofbiological resources
•GlobalGimateChangeConventionAllCountries (EC+-MS)
Industrialized Countries
(includingEC)
id
2.Controlof
GlobalWarm *•Stabilisation ofCOjemissionsai1990
levels
*LimitationorréductionofCH4émissionsInternational Community
ing -Protocol onCO,émission réductions
-ProtocolcnlimitationofCH4emissions
•Increased technical andfinancialAssistance
toDeveloping andCEECountries
*NationalandRegionalStrategies including *Increasedenergyeffiency Individual States,
Regions ,includingEC+MS
•Prolection/enhancement ofGreenhouse
gasesreservoirs/sinks-Inventories ofGreenhouse gases+sinks
♦Increasedenergyeffiency
•Promotion ofrenewable sourcesofenergy
-Economic/ftscalincentives
3.Protection of
OzoneLaver•Phase-outofproduction anduseofCFCs,
Halons,Carbontetrachloride andI.I.I.
trichiorethane•Fullimplemcntation ofMontrealProtocol
(incl.technicalandfinancialassistance )
*Reviewofscientificdataandresponse
•ECRégulationsInternational Community
id
EC+MS
4.Protection of
Forests•Maintcnance /reinstalement offorestsat
leastat1990levels•Globalagreemenlon protection ,development
andmanagement offorests
•Implementation offorestprovisions inglobal
conventions onbiodiversity andclimate
change
•111O“Target2000"ontimbertrade
•Reducedlimberconsumption ,including
promotionofrecyclingofpaperandboard
•Restructuring ofrelevantinternational
organisations e.g.ITTO,TFAP,UNEP
•National strategies forpromotion ,
enhancement andprotection offorests
•Finalization ofpilotprogramme onBrazilian
rain-forest ;extension tootherforestareas
•Increased technicalandfinancialassistances
todeveloping countries
•Monitoring ofglobalforestcoverage ,
includingremotesensingInternational Community
+ITTO
id
*Substantia ]reafforestation programmes
fortropical,temperate andborealforest
areas Producing +importing
countries ,ITTO,EC,GATT
•Integrated protection /sustainable
management offorestareasid
International Community
Allcountries
Brazil,EC,WorldBank,
G-7,othercountries
International Community
EC
id
•Adoptionandimplementation of“Agenda21”
•Effectiveimplémentation ofprovisions on
sustainable development inLoméIV
•Effectiveimplementation ofenvironmental
guidelinesforco-operation betweenECand
ALAcountries
•Effectiveimplementation ofNicosiaQiarter
•PHAREnationalandregionalprogrammes
•Increased technicalandfinancialassistance
toalldeveloping countriesfordieformulation
andimplementation ofnationalandregional
programmes forsustainable development
-institutional strengthening
-financialresources
-scientific andtechnical transfer ,co¬
operationandassistanceUNCEDparticipants 5.Promotion of
sustainable
development*Reliefofpressureontheenvironment in
developing countries resultingfrom
population growthandpoverty EC+ACP
EC+ALA •Integration ofenvironmental objectives
andcriteriaintomacro-economic reform
programmes
•Solutionofcriticalproblemsforthe
development processindeveloping
countries andinCentralandEastern
EuropeMediterranean Countries
EC,EIB,MAP.WorldBank
International Community
EC,WorldBank,G-24,EIB,
Multinational
companies ,financial
institutions ,Research
andTechnological Bodies-energydemandandsupply
-îanddégradation +désertification
-waterresources
•Increasedpublichealthandenvironmental
awareness
-govemement ,localandrcgio?ialauthority
andcorporatedecision-makers
-generalpublicInternational Community
Individual countries
NGOI
*Codesofconductforenterprise * International Community
EC,MS,Enterprises
irtemariaCaanmty ,BC.ftlARE,Warid
JULdfi.BcRD,Frspaiinaoskn91
•Investment inenvironmental cleanupin
for:'vr < -.medcountries

Chapter 13:
UNCED :The United Nations Conference on
Environment andDevelopment
Justasthe1972 Conference inStockholm created a
new awareness andconcern about theenvironment at
broad international level ,sotoocanthe1992 UN
Conference inRiodeJaneiro bring global political will
and commitment toeffective action into anew
dimension .The basic aim oftheConference isto
elaborate strategies andmeasures tohaltandreverse
theeffects ofenvironmental degradation andtopromote
sustainable andenvironmentally sound development
inallcountries .Itshould therefore mark thetransition
from amodel ofdevelopment almost exclusively aimed
atpromoting economic growth towards amodel
wherein environmental protection and rational
management ofnatural resources willbetaken on
board asintegral componentsof development patterns .*An“Earth Charter *orDeclaration ofbasic rights
andobligations with respect toenvironment and
development .
*Anagenda foraction ,“Agenda 21“,which will
constitute theagreed work programme ofthe
international community fortheperiod beyond
1992andintothe21stcentury .
Itisclear thattheoutcome ofUNCED willdeeply
influence theCommunity 'sactions ,policies and
objectives intheyears tocome .Theimplementation
oftheprinciples and measures tobeagreed atthe
Conference willrequire ,firstofall,areassessment of
theCommunity 'sown internal policies ;secondly ,in
conformity with theDublin Declaration ,the
Community must continue itsefforts topromote
international action toprotea theenvironment andto
meetthe specific needs andrequirements ofitspartners
inthedeveloping world andinCentral and Eastern
Europe .TheCommunity and itsMember States areactively
participating inUNCED 'spreparatory process .In
October 1991 ,the Commission tabled a
communication totheCouncil ("Acommon platform
:Guidelines fortheCommunity forUNCED 1992"(1 ))
proposing some basic orientations toguide the
Community 'sstance attheConference .This
communication provided thebasis fortheadoption of
theCouncil 'sconclusions of12December 1991 on
UNCED ,where itwas particularly stressed that,
although sustainable development isimportant toall
countries ,whateverthe present stateoftheireconomies ,
there isaspecial responsibility onthemore developed
countries ,notonlytopursue sustainability themselves ,
butalso toassist other countries ,inafair and
constructive partnership based onmutual trust and
equity ,tomake progress inthesame direction .Inthecase ofthelinkbetween theACP countries and
theCommunity under theLom£ Convention ,the
UNCED process willdeepen joint reflection onfuture
programmes andwillhelptopromote mutual priorities
inmatters ofprotection and conservation ofthe
environment .
Theinternal andexternal dimensions ofCommunity
environment policy areinextricably linked .Both
aspects willhave tobeduly integrated tobuild upa
coherent and effective response tothecomplex
problemson UNCED 'sagenda .Whateverthe remaining
uncertainties about theextent and depth ofthe
environmental damage weareinflicting upon our
planet ,theoverwhelming evidence isthatthethreats
andrisksposed bycurrent trends inconsumption and
behaviour aremuch toogreat tojustify .Apart from theexpected adoption offramework
conventions onclimate change andbiodiversity andof
astatement ofprinciples onconservation and
development offorests (including acommitment to
conclude alegally binding instrument attheearliest
possible time )UNCED 'soutput should include two
keyelements :
92
mSEC (91)1693 final ,30.10.1991

PART NI
Priorities ,Costs ,Review
93

Chapter 14:Selection ofPriorities
Because thisProgramme isasmuch about policy and
strategy designed tochange current trends asabout
specific actions ,andbecause itisbased ontheprinciple
ofsubsidiarity andtheconcept ofshared responsibil ity,
there islessaquestion ofselection ofpriorities than a
choice ofcritical paths .Clearly ,inthecaseofsome
long-term objectives ,ascould apply inthetransport
andenergy sectors forexample ,certain steps haveto
betaken asamatter ofpriority nowinorder toproduce
thedesired results over anextended time-frame .In
cases involving interaction between thepublic and
private sectors ,thedetermination ofrules or
establishment ofguidelines bytheformer may bea
prerequisite foractions bythelatter ,thereby indicating
different time-frames andpriorities inacommon field
ofaction .*Information ,Education and Training ofall
economic actors including policy-makers ,
planners ,managers ,workers ,consumers ;
*FullIntegrationofEnvironmentandOtherPolicies
*Stria Implémentation andEnforcement
Priority Fields ofAction
Intheendeavour tomove towards amore sustainable
balance between human aaivity andsocio-economic
development andtheresources and regenerative
capacity ofnature ,priority isaccorded tothefollowing
fields ofaaion :
*Sustainable Management ofNatural Resources :
soil,water ,natural areas andcoastal zones
*Integrated Pollution Control
*Prevention andManagement ofWaste
*Reduaion intheConsumption ofNon-Renewable
Energy
*More Efficient Management ofMobility
*Improvement oftheUrban Environment
*Improvement ofHealth andSafety ,with special
emphasis onindustrial risk assessment and
management ,nuclear safety andradiation
proteaion .Horizontal Measures
Inorder tochange patterns ofconsumption and
behaviour insociety soastomake them compatible
withtheconcept ofsustainability' itwillbenecessary
tostrike anew balance between theperceived short ¬
term benefits ofindividual persons orbodies andthe
long-term benefit ofsociety asawhole .While the
regulatory approach willcontinue tohave animportant
funaion itwould notbeable toachieve thedesired
balance without theaddition ofcomplementary
measures .Tothis end,thefollowing horizontal
measures areaccorded priority :
*Improvement ofData :basic information ,trends ,
indicators ;
*Getting thePrices Right :internal isation ofexternal
costs through valuation andcosting mechanisms ,
cost/benefit analysis ,economic /fiscal incentives ,
environmental auditing ,civilliability ,etc.;Itwillbenoted that,inkeeping with theprinciple of
subsidiarity andtheconcept ofshared responsibility
which permeates thisProgramme ,many ofthe specific
aaions envisaged willfalltobecarried outatlevels
other than thatoftheCommunity .Furthermore ,
pursuant toTreaty requirements onintegration of
environment intoother policies ,some oftheabove
priority areas willfalltobepursued partly ,orprimarily ,
within theambit ofpolicies such asthose onagriculture ,
energy andtransport .
95

Chapter 15:TheQuestion ofCost
(i)Information about thephysical state ofthe
environment isoften lacking orinsufficient .There
isuncertainty about thetolerance limits ofthe
environment .General considérations
Oneofthemajor shortcomings ofeconomic policy in
thepast hasteen itsfailure totakeintoaccount or
measure accurately thefullexternal costs imposed on
theenvironment .Historically ,theEarth 'seco-system
hasbeen treated asaninfinite source ofrawmaterials ,
energy ,water etc.(ii)Thecostsofenvironmental damage orthebenefits
ofrepairing theenvironment orcosts of"non-
action "aredifficult toassess ,with practical
techniques onlyjustbeginning toemerge .
(iii)Thevalueoftheenvironment tofuture generations
requires thechoice ofanappropriate discount
rate,itself apotentially controversial issue .
iv)Unlike business which usesmoney asacommon
unitofmeasurement ,there isno"numeraire "for
environmental variables .This means itisdifficult
toweigh uptrueopportunity costs ofimproving
oneenvironmental variable against another .Also
because some environmental threats maydamage
human health and,secondly ,because ultimately
allenvironmental variables interl ink,environment
policy requires anintegrated or"holistic "
approach .Society 'sincome (orGDP )wasseentodepend onlyon
capital andlabour resources .However ,itisnowclear
thatsociety 'sincome today andinthefuture andthe
sustained production ofgoods andservices depend
notjustontheavailabilityofcapitalandlabourbutalso
onnatural and environment resources .Failure to
properly account for,costandvalue theenvironment
andenvironment policy may lead toawholly
misleading understandingof society 'swealth ,itsincome
anditsrealsustainable development potential .
Policies which aredesigned topromote economic
development aredoomed toeventual failure iftheydo
notinclude theenvironmental dintendon asanintegral
component .The climatic changes ,acidification ,
desertification ,flooding ,toxic waste andpollution
which arecausing somuch concern today canallbe
traced back ,tooneextent oranother ,toshort-sighted
actions foreconomic gain which failed totakethe
longer-term environmental costs intoaccount .Justas
asound business enterprise endeavours tomaintain
andincrease itscapital value andinvests infacilities ,
expands production ,buys new equipment and
improves thequality ofitsservices inorder toprotect
itslong-term health ,soalso Planet Earth requires
certain types of'investments' inorder tomaintain
itself asahealthy ecosystem andtoensure long-term ,
sustainable ,economic growth .Future generations
depend ontheinvestments wemake now .Failure to
make these investments induetime could ultimately
putwhole regions andultimately civilization itselfout
ofbusiness .(v)Community public policy choices aregoverned
notjustbyenvironmental costs andbenefits (even
ifmeasurable )butbyother principles enumerated
intheTreaty (e.g.precautionary andpreventive
principles ,social cohesion etc.)
Also ,there should beaclear understanding thatcertain
aspects oftheenvironment areorcanbe"priceless "
andthereby notsusceptible tonormal economic costing
mechanisms such ascost-benefit analysis orthefree
playofmarket forces e.g.anadequate quality levelof
drinking water ,thelastgiant panda orelephant ,the
singing ofbirds ,aspects ofcultural heritage .Where
satisfactory economic evaluation andcosting isnot
possible ,qualitative evaluation isanindispensable
toolforacceleratingthe fullintegration ofenvironmental
considerations intothedecision making process and
transition towards sustainable development Tothis
end,instruments such asenvironmental indicators and
environmental impact assessments should befurther
developed andrefined .Practical Difficulties inCosting theEnvironment and
itsPreservation
Firstly ,itisnotpossible toindicate thepotential "cost”
oftheProgramme asawhole totheMember States ,the
regional andlocal authorities andtheeconomic actors .
Iftheconcept ofsustainable development hasany
credibility ,theultimate benefits should outweigh the
so-called costs over time ;inthiscontext ,thenew
Treaty (Article 130r.3 )requires thattherealcostof
non-action betaken intoaccount inanysuchequation ;
ifthecosts of'non-action' arenottaken intoaccount ,
decision-making willtend tobebiased against a
sustainably optimal policy response .However ,in
practical terms ,anumber ofmajor difficulties arise :None ofthis istodeny theimportance ofcosting
environmental policiesand programmes .Inaccordance
with theTreaty ,ananalysis ofthepotential costs and
benefits ofaction andnon-action will beundertaken in
developing specific formal proposals within the
Commission .Indeveloping such proposals every care
willbetaken asfaraspossible toavoid theimposition
ofthisdisproportionate costs andtoensure thatthe
benefits willoutweigh thecosts over time .
96

domain .Appropriate discount rates should be
chosen tosafeguard therightsof future generations
with dueallowance foruncertainty andrisk.
ACommunity cost-benefit methodology should
bedrawn-up asamatter ofurgency which could
beapplied toallprojects andpolicies with an
environmental dimension .Consideration should
begiven towhether thecosts of"shadow "
environmental restoration projects should be
included ineconomic cost-benefit analyses and
under what conditions such shadow projects
should begiven preference (e.g.inconditions of
great uncertainty ).Future Perspectives onCosting
Assoon asmaybepossible ,then ,abroad andbalanced
approach tothedesign andthechoice ofenvironmental
priorities must beelaborated ,based onthefullest
possible assessment ofallrelevant costs andbenefits .
Inthesame vein ,theselection ofinstruments should be
such astoallow given environmental targets tobe
reached with least costs .Inthislatter respect ,the
measurement ofcosts should include theadministrative
orresource costs carried bythepublic sector andan
economic evaluation ofthediminution ofthenatural
resources stock aswell asthecompliance costs faced
byenterprises andprivate households .Thefollowing
5-point plan isadvanced asapackage tobepursued
during thetermoftheProgramme inorder tocome to
terms with thedifficulties outlined above andtodevise
anappropriate andeffective costingmechanism which
will serve thedual requirement ofenvironmental
protection andsustainable development :
*Asamatter ofpriority ,improved information on
thestateoftheenvironment ,appropriate indicators
andtolerance capacities must bemade available
topolicy makers inorder tobetter define
sustainable development parameters .AllCommunity environmental policies andother
policies havingan environmental dimension must
becosted ascomprehensively aspossible ,taking
intoaccount alIcosts andbenefits of"action "and
"non-action "inconformity with Article 130r of
theTreaty .Where possible priorities should be
determined onthebasis ofwhere benefits are
highest .
Environmentally adjusted (i.e.totakeaccount of
thenatural resource stock ofair,water ,soil,
landscape ,heritage etc)national accounts should
beavailable onapilot basis from 1995onwards
forallCommunity countries ,with aview toformal
adoption bytheendofthedecade .Further intensive research efforts areneeded to
value and account fortheenvironment ;
international coordination andburden-sharing
should beencouraged wherever possible inthis
Chapter 16:Review oftheProgramme
While thisProgramme adopts theendofthedecade as
itshorizon ,thepresent intention istohave it"rolIover"
atanintermediate stage .Apart from theexpected
improvement inrelevant information andavailability
ofresults from theCommunity 'scurrent research
programme ontheenvironment 0990-94 ),there will
bemajor reviews ofCommunity policies onindustry ,
energy ,transport ,agriculture andtheStructural Funds
overthenextfewyears .Theroad tosustainable development bothwithin the
Community andbeyond will bealong one .This
Community Programme isintented toinitiate changes
inbehaviour andtrends atCommunity level ,inthe
Member States ,inthebusiness world and atthelevel
oftheordinary citizen .The approach adopted
throughout istodetermine
*objectives ,either specific orgeneral ,pointing
towards asustainable development path;
*targets fortheperiod upto2000 sothatthere will
beeither aquantifiable orqualitative measure of
progress ;and
*actions tobetaken intheshort -to-medium term to
initiate thejourney and/ortoaccelerate progress .
Becauseof inadequaciesin base-linedataand projected
trends there arebound tobeuncertainties about the
validity ofcertain targets ortheurgency ofcertain
actions .However ,theHeads ofState andGovernment
oftheCommunity have determined that,inaiming for
sustainable development ,theprecautionary approach
should apply .Applying theanalogy ofalarge ship,which takes
considerable time andspace tomanoeuvre ,the 1992-
95phase should beviewed asapriming period ,
changing thesense ofdirection andcommitment ,and
the 1996-2000 phase asgetting theoperation under
fullsteam .Accordingly ,acomprehensive reappraisal
ofthesituation willbeundertaken andanup-dated
report onthestateoftheenvironment andareview of
thepolicy -cum-strategy setoutinthisProgramme will
bepublished before theendof1995 .
97

Conclusion
Theachievement ofthisProgramme anditsobjective
ofsustainable development constitutes oneofthe
major political andeconomic challenges forthe
Community between nowandtheyear2000 .Itisthe
basis forthe'more enlightened andmore systematic
approach toenvironmental management "thatthe
European Council inJune 1990 feltwas urgently
required .Tofailtorisetothischallenge would notonly
bedetrimental tothepresent generation butwould
alsoconstitute agrave disservice tofuture generations .
TheCommunity andallitscitizens must take their
responsibilities intheir own hands .Itisabove alla
shared responsibility which requires collective action .We areataturning point intheintegration of
environment issues into theother policies ofthe
Community .Theimpact oftheInternal Market ,the
need toputsustainable development attheheart of
other policies andtosetanadequate example tothe
restoftheworld require amajor change inapproach .
ThisProgramme itself constitutes aturning point .Itsets
outforthefirsttime both astrategy andtimetable for
theactions necessary toensure thattheCommunity
itself moves towards asustainable economy ,andfor
assisting less-developed neighbours todosoalso .This
Programme isnotmerely ataskfortheCommunity
institutions :itwillrequire thefullpartnership andfull
support ofalItheactors necessary tomake itwork .The
Community canonly provide theframework .THE ENVIRONMENT ISDEPENDENT ON OUR
COLLECTIVE ACTIONS ;TOMORROW 'S
ENVIRONMENT DEPENDS ON HOW WE ACT
TODAY .
98