No C 298/40 Official Journal of the European Communities 27. 11. 89 
will enable old people in need of care to remain in their 
familiar surroundings. The same observations apply, 
mutatis mutandis, to the disabled. 
3.9. The reform of the Structural Funds and financial 
assistance for rural society 
3.9.1. At its meeting on 11 and 12 February 1988 the 
Council agreed to double the Structural Fund commit­
ment appropriations by 1993. This is welcomed by the 
Committee. The aid criteria, however, exclude agri­
culture in wide areas of the Community. The Com­
mittee therefore calls upon the Council and the Com­
mission to provide for adequate funds for assistance to 
agriculture and rural areas in accordance with objec-
Done at Brussels, 27 September 1989. 
The Commission's communications on the future of 
rural society and on environment and agriculture are 
clearly related. The Economic and Social Committee 
has taken account of this logical connection by issuing 
two separate Opinions, but drawn up simultaneously 
by the same Sub-Committee. 
The Committee has noted with interest and satisfaction 
the work carried out in the framework of the European 
campaign for rural society organized by the Council of 
Europe in 1987 and 1988, the results of which coincide 
in many respects with the views expressed by the Com­
mittee in this Opinion. tives 1, 5a and 5b. The financial arrangements for 
assistance to agriculture in the 5b regions are at present 
quite inadequate. The funds saved by the Community 
on the market should be made available for implement­
ing the policy on agricultural structures. 
4. This Opinion highlights some of the measures 
necessary for the future of rural society. The Committee 
recognizes that many of them will cost the tax payer 
a good deal of money and therefore cannot all be 
implemented at the same time. 
The Committee therefore asks the Commission to carry 
out a cost/benefit analysis, taking into account long-
term waste disposal costs and social costs, in order to 
establish the optimum priorities. 
The Chairman 
of the Economic and Social Committee 
Alberto MASPRONE 
1. Preliminary comments 
1.1. Natural disasters can do great damage to the 
environment. It is essential to be able to predict and 
control them and mitigate their consequences. 
It is mankind who, through carelessness and unthinking 
attitudes and actions, disturbs the harmony of the 
environment, thus impairing his own quality of life. 
This means: 
— all human activities: production, consumption, etc., Opinion on environment and agriculture 
(89/C 298/11) 
On 13 December 1988 the Economic and Social Committee, acting under Article 20, fourth 
paragraph, and Article 17 of its Rules of Procedure, decided to draw up an Opinion on 
environment and agriculture. 
The Sub-Committee on Rural Society/Environment and Agriculture, which was responsible 
for preparing the Committee's work on the subject, adopted its draft Opinion on 26 July 
1989. The rapporteur was Mr Burnel. 
At its 269th plenary session (meeting of 27 September 1989) the Economic and Social 
Committee adopted the following Opinion unanimously. 
27. 11. 89 Official Journal of the European Communities No C 298/41 
— certain laws, regulations and budgets, 
— certain decisions taken in the fields of industry, 
agriculture, town and country planning, and 
— certain ways of life which do not take systematic 
account of the pre-eminent place and responsibilit­
ies of man in the economy and everyday life. 
Thus, right at the start of this Opinion, which is con­
cerned with the relationship between the environment 
and agriculture, the Economic and Social Committee 
would make the point that protection of the environ­
ment has to be treated globally. The Committee is 
making it clear that farmers must not be regarded as 
the main, still less the sole, culprits for the destabiliz-
ation and deterioration of the natural environment. 
A problem as important as the protection of the 
environment is the common responsibility of every one 
of us, collectively and individually. 
1.2. In the introduction to its communication on 
environment and agriculture the Commission deals first 
with 'agricultural evolution and common agricultural 
policy (CAP) reform'. 
1.2.1. It aptly points out that for a very long time 
farmers 'have, on the whole, lived and worked in har­
mony with nature. They have depended fertile soils, 
clean waters and a stable ecological balance'. They 
'depended upon nature' for their livelihood. 
From this the Commission draws the conclusion that 
farmers have played a key role in soil conservation and 
preserving nature. 
1.2.2. Acknowledging that this remains true, the 
Commission states that 'where depopulation and aban­
donment of the land threatens damaging ecological 
consequences, it is often farming activity which holds 
these consequences at bay'. 
1.2.3. The Commission adds that, although agri­
culture has undergone a technological revolution, it 
suffers like any other activity from economic pressures. 
It would therefore be futile and impracticable to treat 
agriculture in isolation from other activities, or indeed 
the reverse. 
1.2.4. Faced with the need to find a solution to the 
problem of over-production, the Community has been 
obliged to reflect on the role of agriculture in the 
economy and in society. 
In the interests of efficiency and objectivity, four aspects 
have to be taken into account: — the economic aspect: farm prices, farm incomes, 
etc., 
— the social aspect: social security and health protec­
tion, training, employment, etc., 
— sociological, cultural, psychological and human 
aspects: population trends, individual and family 
life-styles and living conditions, housing, communi­
cations, preserving traditional values, etc., 
— the ecological aspect: protection of our natural heri­
tage and the environment in relation to the quality 
of life and protection of human health. 
1.2.5. The Commission continues its reflections by 
stating that 'the measures which now need to be taken 
to ensure a better control of production must be such 
as to guarantee that all future progress in the sector is 
achieved in harmony with environmental requirements, 
and that an environmental equilibrium is eventually re­
established'. 
1.2.5.1. It concludes on an optimistic note: 'There 
exists today a context more favourable to the inte­
gration of an environmental dimension in the frame­
work of the adaptation of production potential to mar­
ket requirements.' 
1.2.5.2. This is an approach and attitude to which 
the Economic and Social Committee can subscribe: 
they are sensible and forward-looking. The Committee 
regrets however that so many of the Commission's 
proposals are limited in scope. Action to be taken is 
for the most part left to the initiative of the Member 
States. 
1.2.6. And this is why it is imperative that the necess­
ary measures should not be watered down and should 
be implemented without delay. The Committee has 
given its views on this subject on a number of occasions, 
frequently pointing to the halfheartedness of some 
measures and to the inadequate funding of others. 
These shortcomings apply to both Commission activi­
ties and those undertaken by the Member States. In 
view of what is at stake, in this area as in others, greater 
political will is needed. 
1.2.6.1. It is necessary: 
— to assess whether the Commission's present pro­
posals fit in with the approach which it advocates, 
— to assess the extent to which they can help meet the 
challenges faced by farmers and non-farmers alike. 
It is the quality of life and our health which are at 
stake, and therefore the future and happiness of 
society. 
1.2.6.2. This is a problem which affects everyone 
and calls for individual and collective responsibility, 
respect for others, justice and solidarity. 
No C 298/42 Official Journal of the European Communities 27. 11. 89 
1.3. We must briefly recapitulate the principal 
opinions already expressed by the Committee. 
1.3.1. The Committee has consistently taken 
'environmental' aspects into account in its Opinions. 
Its review of the CAP has provided opportunities to 
discuss the relationship between environment and agri­
culture. 
1.3.2. The Committee has issued several Opinions 
containing numerous comments and standpoints: 
Opinion on the prospects for the CAP (1985), 
Opinion on the amendment of the agricultural struc­
tures Regulation, own-initiative Opinion on the various 
agricultural proposals for implementing the Single Act 
(1987), Opinion on the Council proposal on preventing 
environmental damage by the implementation of edu­
cation and training measures (1988), Opinion on the 
proposed Directive on the deliberate release of geneti­
cally modified organisms (1988). 
1.3.3. In summary the Committee's views are as fol­
lows: 
1.3.3.1. It attaches great importance to an active 
environmental policy and thus 'favours constructive 
voluntary measures to improve the environment'. 
1.3.3.2. It encourages the integration of environment 
policy into the reformed CAP: 
— stressing the role of agriculture in conservation of 
the countryside, 
— considering it necessary to curb farming practices 
which damage the rural environment. 
1.3.3.3. The Committee has stressed the importance 
of a policy which favours the improvement of product 
quality rather than increases in the quantities produced: 
'But higher productivity can no longer be attained 
through increased production; the objective should 
be a more efficient use of the factors of production. 
Furthermore, it is necessary to gear production 
towards higher quality products to improve work­
ing conditions and to develop methods of culti­
vation and stockrearing compatible with the protec­
tion of the environment.' 
With this in mind the Committee has expressed its 
support for alternative systems of agricultural pro­
duction. 1.3.3.4. The Committee has called for greater effort 
on the agricultural research front and to inform and 
train farmers: 
'An information and education campaign targetted 
on those responsible for environmentally harmful 
agricultural products could prevent pollution.' 
1.3.3.5. The Committee has advocated consideration 
of special rewards for ecological services by farmers 
and stressed the importance of protecting the environ­
ment by keeping a minimum level of population in 
numerous areas among the most beautiful in the Com­
munity. 
1.3.3.6. Finally, the Committee recognizes the need 
for 'common rules in this area (harmonization of the 
law on the use of pesticides, fertilizers, hormones, etc.)' 
and for imported products to 'be subject to the same 
rules as Community products'. 
1.4. Protection of the environment is important if 
human beings are to be accorded the respect they are 
due. It is a determining factor in the quality of life. 
1.4.1. Man's impact on the environment can be 
irrational and malign, where it should be rational and 
positive. We damage, or protect, our natural assets and 
our environment. Thus we serve or harm society. 
1.4.2. While in some areas overpopulation leads to 
increased dangers, in rural areas the drastic depletion 
of the, mainly farming, population weighs against long-
term nature conservation. Whilst mankind is undeni­
ably responsible for the pollution and destruction of 
the environment, mankind alone is able to maintain 
and protect it (cf. 1.3.3.5). 
1.4.3. Education and information have a decisive 
role to play in any solution to the protection of the 
rural and urban environment. 
This is a point the Committee has already made: how­
ever important their factual content, education together 
with information must include an ethical and civic 
component. 
1.4.4. Turning more specifically to the reciprocal 
relationship between environment and agriculture, five 
comments may be made: 
— Agriculture is a dynamic element of economic 
activity and social life. It is therefore subject to the 
laws of the marketplace. 
27. 11. 89 Official Journal of the European Communities No C 298/43 
— Farmers and their families, like all workers, have 
the right to live from the economic and social fruits 
of their labour. 
— Their contribution to conserving the environment 
must be one of the consequences of their work and 
their professional responsibility but not be its main 
purpose. In areas where farming is disappearing or 
in sharp decline, appropriate means will have to be 
found to conserve the landscape and fauna. 
— Those who use certain dangerous products in their 
work are often the first victims of these products. 
Hence the need to develop information and training, 
enact suitable legislation, and ensure that these 
measures are effective. 
The same comment applies in the case of consumers 
and the inhabitants of vulnerable areas, particularly 
with regard to training and information which must be 
objective and accessible to all. 
1.5. In view of the stakes, the problems raised by 
'environment and agriculture' must be tackled not only 
by specific measures but also by an overall strategy: 
some damage to the environment caused by particular 
agricultural activities has its origins at an earlier stage 
(e.g. in the choice of technologies and means of pro­
duction, production objectives, etc.). 
As always when environmental protection is under 
discussion, three questions arise: 
1.5.1. The purpose of economic progress, i.e. the 
place of man as producer and consumer (his role, degree 
of autonomy, real responsibilities ...). 
1.5.2. The value which one attaches to life (one's 
own and that of others) and consequently the 'price 
one is prepared to pay' to work together to protect 
and improve it (both in financial terms and by the 
acceptance of rules which may be irksome but which 
are nonetheless essential when the public good is at 
stake). 
1.5.3. The meaning of freedom which is limited by 
the rights of other people and the responsibility of an 
individual causing harm to make redress. 
2. Specific comments 
2.1. In some cases farming can lead to a deterioration 
of the environment, in others it can help protect the 
environment. 
Consequently the proposed measures must be tailored 
to these diverse situations. 2.2. Control the effects of farming 
2.2.1. The Committee supports incentives and poli­
cies aimed at correcting or curbing production methods 
which can damage the environment and people. 
2.2.2. Some existing measures and others proposed 
by the Commission provide useful pointers which could 
be profitably supplemented to form an effective and 
coherent policy. In this context it should be pointed 
out that excessive use of water by farms can under 
certain circumstances pose a threat to local water sup­
plies. 
2.3. Evaluate the environmental impact of rationaliz­
ation measures 
2.3.1. The land use measures proposed by the Com­
mission are constructive. 
2.3.2. It is essential that land improvement activities 
(field rationalization, drainage and irrigation, defores­
tation) be evaluated, as the Commission proposes. 
Compulsory implementation would help limit the 
potentially damaging or dangerous impact of these 
activities. 
2.4. Limit the unintended negative effects of the use 
of plant health products 
2.4.1. The Commission suggests: 
— reconsideration of authorizations for the use of 
certain products or substances, 
— the drawing up of stricter standards for their pro­
duction and sale, 
— labelling controls. 
2.4.2. These measures are a step in the right direc­
tion. The Committee would like to see better infor­
mation for the farmer. For users of a product, infor­
mation and responsibility are closely linked. 
The Committee is also pleased to note that the Com­
mission is going to look into the question of whether 
the more dangerous sorts of pesticide can continue to 
be distributed and used by people lacking appropriate 
qualifications, equipment and facilities. 
2.4.3. Three further complementary measures are 
needed: 
— increased research leading to real environmental 
protection: research into new active substances; an 
integrated campaign of action, 
No C 298/44 Official Journal of the European Communities 27. 11. 89 
the planning of a publicity campaign supported by 
volunteer farmers on ways of reducing excess use 
of plant health products and taking account of 
environmental concerns, — where there is a surplus of manure, proof must be 
provided that it has been treated and/or removed 
and applied to the land on other farms, or else the 
intensity of livestock production must be reduced. 
— better training for farmers. 
2.5. Reduce the excessive use of mineral fertilizers 
2.5.1. In certain vulnerable zones nitrate pollution 
results mainly from farming. Whatever its source, such 
pollution is always damaging to the environment and 
people. 
2.5.2. Farmers must exercise greater vigilance in 
using nitrogenous products and eliminate the most fre­
quent errors. Farmers should be provided with precise 
information on atmospheric nitrogen emissions. 
2.5.3. The Committee endorses the Commission's 
proposal recommending that farmers be actively 
involved on a voluntary basis in reducing nitrate use. 
The Committee would draw attention to its proposals 
on the use of 'economic instruments of environment 
policy' contained in its Opinion on the fourth European 
Community policy and action programme on the 
environment. In particular, research on methods and 
frequency of application and its impact on the nitrogen 
cycle should be stepped up. 
2.6. Control concentrations of factory farms 
2.6.1. The concentration of large factory farms can 
also be a source of pollution, particularly of ground 
water, quite apart from other drawbacks, such as their 
smell. 
2.6.2. If the size of these farms outstrips the capacity 
of the land used to absorb the resulting animal waste, 
the waste will have to be treated and/or transferred 
and applied to the soil on other farms. 
2.6.3. The Committee therefore considers that the 
measures advocated by the Commission are appropri­
ate, viz.: 
the creation of new production units and significant 
extension of existing ones will be subject to prior 
authorization and an environmental impact assess­
ment, 
the application of animal manures will be limited 
to the take-up capacity of crops, 2.6.4. As in the case of plant protection products 
and fertilizers, these measures must be accompanied by 
research, development and training. The polluter pays 
principle should also be applied in the event of environ­
mental damage. 
2.6.5. The Committee affirms that the existing 
imbalance between the volume of animal wastes and 
the area of agricultural land available in the areas 
where factory farms are located is a key problem. This 
imbalance is a result of the feeding systems, based 
on concentrates, most of the ingredients of which are 
imported. Therefore the Committee urges the Com­
mission to adopt appropriate measures to limit and 
regulate the intensive use of such types of feed (cf. 
1.3.3.6). 
2.7. Combat desertification: promote economic activi­
ties suited to disadvantaged rural areas 
2.7.1. The continuation of agriculture is essential to 
the environmental balance in many disadvantaged 
areas: frequent fires and the deterioration of land, as a 
result of monoculture in forestry or ever larger tracks 
of land being allowed to be idle, are among the real 
threats to the environment {cf. 1.4.2). 
2.7.2. Agriculture can be maintained by: 
2.7.2.1. A global policy of extensification of agricul­
tural production: obstacles to extensification, e.g. 
where these arise from rigidities in the law and tax 
system, need to be removed. The Commission's com­
munication mentions this kind of policy. The Com­
mittee calls on the Commission to put forward more 
specific proposals on this subject. Such a policy must 
include measures to contain the natural drift away from 
farming in disadvantaged areas. 
2.7.2.2. Encouraging farmers in problem areas to 
combine agriculture with other complementary activi­
ties (e.g. tourism and forestry). 
2.7.2.3. Promoting products of guaranteed quality 
by means of labels and registered designations of origin. 
In the problem areas concerned, farmers have generally 
been able to preserve a tradition of high quality agricul­
tural products and environmentally conscious methods. 
27. 11. 89 Official Journal of the European Communities No C 298/45 
The introduction of quality and origin labels in these 
areas—based on precise specifications—could help 
farmers capitalize on this heritage and maintain high 
value-added activities. 
The Committee calls for the development of such poli­
cies of quality so as to boost products from disadvan­
taged rural areas. 
2.7.2.4. The Committee would like to see 'biological' 
farming encouraged and calls on the Commission to 
propose a regulatory framework to define this kind of 
farming, set limits for its impact on the environment, 
guarantee product quality and protect the consumer 
against fraud. 
2.7.2.5. If farming is to continue in disadvantaged 
areas, account has to be taken of natural, human and 
sociological factors likely to affect production costs. 
2.8. Involve farmers in an environmental protection 
policy 
2.8.1. As farmers have to play a key role in preserving 
the rural environment policies are needed to compen­
sate them for these public services (cf. 1.3.3.5). 
2.9. Protect vulnerable zones 
2.9.1. The Commission highlights the danger of 
deteriorating habitats and the disappearance of wildlife 
Done at Brussels, 27 September 1989. species in vulnerable zones, e.g. wetlands. The Com­
munity has introduced an allowance per hectare for 
farmers using environmentally benign methods. 
Unfortunately these measures are very limited in scope 
and should be re-examined with a view to expansion. 
2.9.2. Referring to its previous Opinions {cf. 1.3.3.5) 
the Committee emphasizes the benefits of compensating 
farmers for protecting and making the most of the 
environment in the common good, e.g. by avoiding 
atmospheric pollution, preserving areas of natural inter­
est and allowing the public access to their land. 
2.10. Develop the concept of a land maintenance con­
tract between farmers and society 
2.10.1. These contracts between farmers and local 
authorities should link the right to farm with quality 
and nature conservation clauses. 
2.10.2. Contracts could be drawn up at local, 
regional or national level, covering specific tasks such 
as the maintenance of roads, hedgerows, ski pistes 
etc. or the conservation of species of domestic animal 
threatened with extinction, or the exploitation or clear­
ing of undergrowth, etc. 
The Chairman 
of the Economic and Social Committee 
Alberto MASPRONE