Proposal for a COUNCIL REGULATION (EC) amending Regulation (EEC) No 3528/86 on the protection of the Community' s forests against atmospheric pollution
Date: 1996-07-16
Institutions: European Commission
Subjects: EU Member State, EU financing, action programme, air quality, forest conservation, pollution control measures

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 16.07.1996 
COM(96) 341  final 

96/0185 (CNS) 
96/0186 (CNS) 

Proposal for a 
A. COUNCIL REGULATION (EC) 

amending Regulation (EEC) No 3528/86 on the protection of the Community*! 
forests against atmospheric pollution 

Proposal for a 
B. COUNCIL REGULATION (EC) 

amending Regulation  (EEC) No 2158/92 on protection  of the Community's  forests 
against fire 

(presented by the Commission) 

Proposal for a 
A. COUNCIL REGULATION (EC) 

amending Regulation  (EEC) No 3528/86 on the protection  of the Community's 
forests against atmospheric pollution 

EXPLANATORY  MEMORANDUM 

1. The concern about the deterioration  of forest  condition  in Europe due to atmospheric pollution 
during the  1980s lead to the Community scheme on the protection of forests against atmospheric 
pollution,  established by the Council  in  1986 (Regulation  (EEC) No. 3528/86  of  17 November 
1986;  legal  basis: Articles 43 and  130S, paragraph  1, of the Treaty)  and extended  by a second 
period  of  5 years  in  1992 (Regulation  (EEC) No.  2157/92  of  23  July  1992. The  Community 
scheme was established  in order to protect the forests  against atmospheric  pollution  and  hereby 
to contribute,  in particular, to safeguarding  the productive potential of agriculture by monitoring 
the forest  condition  in Europe and by carrying out pilot and demonstration  projects  in the field. 
This scheme will end on 31 December  1996. 
In  order  to continue the observations which  have started  on the Community  networks, to  allow 
the completion of the intensive forest ecosystems monitoring network and the full  implementation 
of  all  agreed  common  monitoring  activities  on this network,  to evaluate  the monitoring  results 
obtained  and to derive the necessary conclusions and recommendations  for  the future  protection 
and  management  of  European  forests,  the Commission -  according  to  its programme  of  work  -
proposes  to  the  Parliament  and  to  the  Council  the  extension  of  the  existing  scheme  for  five 
additional years (1997 to 2001). 

2.  During  the  past  10 years  an  outstanding  system  of  monitoring  of  forest  condition  has been 
established  which  provided  comprehensive  knowledge  of  the  extent,  dynamics  and  spatial 
distribution of forest damage in the Community. It also gave impetus for reductions of emissions 
of air pollutants. Following the Strasbourg Ministerial Conference on the protection of forests in 
Europe  (1990)  and  the  task  given  by  the  Council  in  1992  (Regulation  (EEC)  No.  2157/92)  a 
network of intensive monitoring plots has been established which will now in most regions of the 
Community  enter  its operational  phase.  From  the  intensive  monitoring  an  improvement  of  the 
understanding  of  causal  relationships  between  changes  in  forest  ecosystems  and  the  potential 
damaging  factors  is expected. 
From  1987 to  1996 the Community supported Member States in implementing the scheme by co-
financing more than  450 projects  with  a total financial support of 42 MECU. 

3.  The Community  scheme respects the principles of subsidiarity and  proportionality: 

Forest  damage  caused  by  transboundary  air  pollution  is  not  a  national  problem.  A 
Community intervention  is necessary in order to allow a large-scale monitoring of  forest 
condition  and  an efficient  protection  of European  forests. 
Forest  damage  is caused  by  a  number  of  complex  factors.  Apart  from  the  continuing 
impact  of transboundary  air  pollution,  it  is to  be feared  that  future  pressures on  forests 
are likely such as for example climatic changes arising from global warming. The benefits 
of an efficient  protection  of forests  against these transboundary  damage factors  must be 
considered as vital for environmental  as well as for  socio-economic reasons, with  effects 
on the Community as a whole. 

4. The Community scheme on the protection  of forests against atmospheric pollution  is coherent 
with the agricultural policy of the European Union, in particular,  by contributing to  safeguarding 
the productive potential of agriculture through the protective functions of forests in relation to soil 
and  water  resources.  The  scheme  is  as  well  coherent  with  the  5th  Community  Programme  of 
Policy  and  Action  in Relation to the Environment  and  Sustainable Development  adopted  by the 
Member  States  in  1993.  In  addition,  the  scheme  is  essential  for  the  implementation  of  the 
Community's  commitments at  international  level: 

the  Community's  participation  in  the  International  Cooperative  Programme  on  the 
Assessment and  Monitoring  of  Air  Pollution  Effects  on  Forests  (Convention  on  Long-
Range Transboundary  Air  Pollution  of  1979, Geneva); 

3 

the  adoption of  relevant  resolutions  by the Community at the  1st and 2nd Ministerial 
Conference on the Protection of Forests in Europe (Strasbourg  1990, Helsinki 1993); 
the Community's engagement  at the United  Nations  Conference  on  Environment  and 
Development (Rio De Janeiro, 1992). 

Proposal for 
Council Regulation (EC) No  .... 

I 

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of 

amending Regulation (EEC) No  3528/86 on the protection of the Community's 
forests against atmospheric pollution 

THE COUNCIL OF THE EUROPEAN UNION 

Having regard to the treaty establishing the European Community, and in particular 
Articles 43, thereof; 

Having regard to the proposal from the Commission1; 

Having regard to the opinion of the European Parliament2; 

Having regard to the opinion of the Economic and Social Committee3; 

Whereas the present period of application of Regulation (EEC) No 3528/864 on the 
protection of Community's forests against atmospheric pollution, as last amended by 
Regulation (EEC) No 2157/925, will  expire on 31 December 1996; 

Whereas forests play an essential part in maintaining fundamental  ecological balances, 
particularly as regards the soil, water resources, climate, fauna and flora and whereas 
those ecological  balances are indispensable for a sustainable agriculture and the 
management of rural areas; 

Whereas the conservation of the forest ecosystems is important for its economic, 
ecological  and social  functions and contributes, in particular, to safeguard the social 
function  for those people working in agriculture and rural areas; 

Whereas the European Union has committed itselve at international level (Ministerial 
Conference  on the Protection of Forests in Europe, Strasbourg,  1990 and Helsinki, 
1993),  for a continuing  forest damage survey; 

Whereas results from the systematic network show obvious trends in spatial and 
temporary  distribution of forests damage over the entire area of the European Union, 
whereas these measures need to be continued; 

Whereas plots for the intensive and continuous monitoring of forest ecosystems have 
been set-up by the Member States; whereas only a continuation of these monitoring 

OJ  No C  xxx,x.xx.l99x,p.x. 

OJ  No C xxx.xx.x.l99x,p.x. 

OJ  No C  xxx.xx.x.l99x,p.x. 

OJ  No  L 326, 21.11.1986,  p. 2. 

OJ  No  L217,  31.7.1992.  p.  1. 

activities over a longer period will improve the understanding of the causal 
relationship between changes in forest ecosystems and the factors influencing  it; 

Whereas forest damage due to various factors, notably atmospheric pollution and 
certain unfavourable meteorological  events, are problematic for the development of a 
sustainable agriculture and the management of rural areas; 

Whereas consequently the protection of forests against atmospheric pollution 
contributes directly to the achievement of the objectives laid down in article 39, 
paragraph  1, point b of the Treaty; 

Whereas consequently the Community scheme on the protection of forests against 
atmospheric pollution should be continued and therefore an extension by 5 additional 
years should be made scheduling the scheme to run for  15 years from 1 January 1987; 

Whereas an amount of ECU 40 million is deemed necessary for the implementation of 
that multi-annual programm; 

HAS ADOPTED THIS REGULATION: 

Article 1 

Regulation (EEC) No 3528/86  is hereby amended as follows: 

In Article  11 the paragraphs  1 and 2 are replaced by the following: 

'Article  11 

1. The scheme is scheduled to run for  15 years from 1 January 1987. 

2.  The amount of Community financial resources deemed necessary for 
implementation of the scheme is ECU 40 million for the period  1997 to 2001. 

Article 2 

This Regulation shall enter into force on the third day following  that of its publication 
in the Official  Journal of the European Communities. 

This Regulation shall be binding in its entirety and directly applicable in all Member 
States. 

Done at Brussels, 

For the Council 

REPORT  ON  THE  APPLICATION  OF 
COUNCIL  REGULATION  (EEC)  No. 3528/86  of  17 NOVEMBER  19866 

(implementation  of the Community scheme 
on the protection  of forests  against atmospheric  pollution) 

I. 

INTRODUCTION 

At the end of the  1970s defoliation  and discolouration  of forest  trees were observed  on  certain 
sites in Central  Europe. During the  1980s the same symptoms were also observed  in other  parts 
of Europe. Taking into account the increasing deposition of air pollutants (sulphur dioxide, oxides 
of  nitrogen, ozone) even  in rural  areas, this "new type of forest  damage" was mainly  attributed 
to atmospheric  pollution. 

The concern  about a possible deterioration  of forest  condition  in Europe  lead to the Community 
scheme on the protection  of  forests  against atmospheric pollution, established by the Council  in 
1986 (Regulation (EEC) No. 3528/86 of  17 November  1986). 

The aim  of the scheme is to protect the forests  in me Community against atmospheric pollution 
and hereby to contribute, in particular, to safeguarding the productive potential of agriculture. The 
Community scheme has been carried out in close cooperation with the International  Cooperative 
Programme  on Assessment and Monitoring  of Air Pollution Effects  on Forests (ICP  Forests of 
UN/ECE)  and  is  consistent  with  Resolution  No.  1 of  the  1st  Ministerial  Conference  on  the 
Protection  of Forests in Europe (Strasbourg  1990). 

II. 

ACTIVITIES  OF  FOREST  PROTECTION  CARRIED  OUT  WITHIN  THE 
COMMUNITY  SCHEME 

According  to  Article  2 of  Regulation  (EEC)  No.  3528/86  (amended  by  Regulation  (EEC) No. 
2157/92 of 23 July  1992) an outstanding programme of monitoring of forest condition in Europe 
has  been  established  which  is  composed  of  large-scale  periodic  inventories  and  an  intensive 
monitoring  of  forest  ecosystems. 

The periodic  inventories are carried  out on a systematic Community-wide network (16 x  16 km) 
of forests sample points. Since  1987 annual forest damage surveys have been carried out. A forest 
soil condition survey has been implemented (1991-1995) and an optional analysis on the chemical 
content  of needles and  leaves is going on (1991-1996).  The main benefits from the  assessment 
on the  large scale gridnet  are an objective  and  accurate knowledge of the extent, dynamics and 
spatial distribution of the symptoms of forest damage in Europe, a database for  future  time series 
analyses of crown  defoliation,  information  on forest  soil conditions and on the nutrient  balances 
in  some  forest  areas.  However,  the  large  scale  monitoring  does  not  aim  at  cause-effect 
relationships. The results of the annual forest damage surveys are published on yearly basis in the 
series of the Forest  Condition  in  Europe. 

Following  the  task  given  by the  Council  (Regulation  (EEC) No.  2157/92,  Article  1) the  large 
scale  systematic  sampling  was  extended  by  the  intensive  and  continuous  monitoring  of  forest 

according  to  Regulation  (EEC)  No 2157/92  of 23 July  1992, Article  1 (OJ  No L217,  23.7.92) 

ecosystems in order to contribute to a better understanding of the impact of air pollution and other 
factors  which  may  influence  forest  ecosystems. In  this context  approximately  450  permanent 
observation  plots  for  the  intensive  monitoring  of  forest  ecosystems  have  been  selected  and 
installed in the European Union (Commission Regulation (EC) N° 1091/94 of 29 April  1994). The 
intensive  monitoring  programme  contains  continuous  and  intensive  surveys  such  as  crown 
condition  assessments, soil  and  foliar  surveys,  increment  studies, deposition  measurements  and 
the observation  of meteorological  parameters  over  a period  of at  least  15 to  20 years. After  an 
initial phase covering mainly the selection and  installation of the intensive monitoring plots and 
the development of systematic collection and analysis of samples (1992 to  1995) this network  is 
now  entering  its  fully  operational  phase.  The  Commission  played  an  important  role  in  the 
development of this programme  and will have to coordinate the common activities in this field. 
The Commission also undertakes the processing and evaluation of the data submitted, as well as 
the preparation  of periodic reports. 
According  to  Article  4  of  Regulation  (EEC)  No.  3528/86  Member  States  are  encouraged  to 
undertake - in addition to the periodic inventories and the intensive monitoring - pilot projects and 
experiments  in the field to  improve  the  knowledge on the  impacts of atmospheric  pollution  on 
forest  ecosystems,  to  improve  observation  methods  and  to  study  possibilities  for  restoring 
damaged  forests.  The  results  of  these  projects  have  been  used  to  improve  observation  and 
monitoring methods (including common methods for the intensive monitoring; e.g. remote sensing 
applications, soil solution analysis) and to devise restoration  methods for  damaged  forests. 

The  above  activities  had  not  been  possible  without  the  financial  support  of  the  Community: 
During  the past  10 years 452 projects  have been carried  out  by the Member  States in this field 
with  a  total  cost  of  more  than  85  MECU  and  a  financial  support  of  the  Community  of 
42,3 MECU (see table below). Of these 452 projects, 233 projects were submitted under Article 
2 of  which  163 projects  were  inventory  projects  on the  16 x  16 km  grid  and  70 projects  were 
intensive monitoring projects on permanent observation plots. The remaining 219 projects  were 
submitted under Article 4 (experimental).  Of the 42.3 MECU which have been allocated  by the 
Community  under  Regulation  (EEC)  No  3528/86  in  total  5.2  MECU  were  allocated  for  the 
execution  of the  inventory  projects  on  the  16 x  16 km  grid.  10.7 MECU were allocated  for  the 
projects of the intensive monitoring projects on permanent observation plots (from  1994 onwards) 
and 26.4 MECU to projects  that were  submitted  under Article 4 (experimental). 
A detailed technical report  on these activities has been prepared  by the Commission services and 
is now available  in English  language. 

Projects  co-financed  by the European  Community between  1987 and  1996 

monitoring  on the 
systematic grid 
(Art.  2) 

intensive monitoring 
(Art. 2) 

pilot and and 
demonstration 
projects (Art. 4) 

number fo projects co-
financed 

financial  support  of the 
Community  (in  MECU) 

163 

5,2 

70 

10,7 

219 

26,4 

total 

452 

42,3 

III. 

FUTURE  ACTIVITIES 

The results of  10 years forest  condition  monitoring  have shown that forest  damage is a complex 
problem. Atmospheric pollution has been detected to have a negativ influence on forest  condition 
in many parts of Europe. However, other damage factors,  biotic or abiotic, will have to be taken 
into account in order to clarify  the cause-effect  relationships between atmospheric pollution, other 

8 

damage  factors  and  the  observed  damage.  An  improvement  of  the  understanding  of  causal 
relationships  between  changes  in  forest  ecosystems  and  the  potential  damaging  factors  is 
especially expected from the intensive monitoring part of the Community scheme. 

In  addition  to  the  periodic  inventories  and  the  pilot  and  demonstration  projects  the  intensive 
monitoring  of forest  ecosystems will therefore  become an  important element of the Community 
scheme. 
After  an  initial  phase  mainly  covering  the  installation  of  the  intensive  monitoring  plots 
(infrastructure)  this  part  of  the  scheme  will  now  in  most  regions  of  the  Community  enter  its 
operational phase with the systematic collection of data, including important activities of sampling 
(soil,  depositions,  needles/leafs  etc.),  collection  of  meteorological  data,  chemical  analysis  of 
samples  etc.  In  certains  regions  the  network  for  intensive  monitoring  will  still  have  to  be 
completed by additional plots. The processing and evaluation of intensive monitoring data by the 
Commission  will  start  in  1996. All  these  activities will  mean  a  considerable  increase  of  costs 
when  compared  with  the  initial  phase when only  little  sampling and  analysis was made on  the 
intensive monitoring plots. 

IV 

CONCLUSIONS AND  RECOMMENDATIONS 

Forest  damage is caused by a number of complex  factors.  Apart from the continuing  impact of 
transboundary  air pollution,  it  is to be feared  that  future  pressures on forests  are  likely such  as 
for example climatic changes arising from global warming. The benefits of an efficient  protection 
of  forests  against  these  transboundary  damage  factors  must  be  considered  as  vital  for 
environmental as well as for socio-economic reasons, with effects  on the Community as a whole. 

Due to the transboundary character a Community intervention is essential in order to help Member 
States to carry out the necessary monitoring activities and to allow the processing and evaluation 
of monitoring  results at Community level. 

In  order  to continue the observations which  have started  on the Community networks, to  allow 
the completion of the intensive forest ecosystems monitoring network and the full  implementation 
of all  agreed  common  monitoring  activities on this network,  to evaluate the  monitoring  results 
obtained  from  the two  networks and  to  derive  the necessary  conclusions and  recommendations 
for  the  future  protection  and  management  of  European  forests,  it  is  proposed  to  extend  the 
existing scheme for five additional  years (1997 to 2001). 

FINANCIAL STATEMENT 

1. 

TITLE OF OPERATION 

Proposal  for  an extension  of the Community scheme on the protection  of Community's  forests 
against atmospheric pollution 

2. 

BUDGET HEADING  INVOLVED 

B2-5150, FORESTS 

3. 

LEGAL BASIS 

Articles 43 of the Treaty; 
Council Regulation (EEC) N° 3528/867 of  17 November  1986 on the protection of forests against 
atmospheric pollution, amended by the Council on 29 May 1989 with Council Regulation (EEC) 
N°  1613/898 and  extended  by the Council  on  23 July  1992 with  Council  Regulation  (EEC) N° 
2157/929. 

4. 

DESCRIPTION OF  OPERATION 

The  scheme  was  established  by  the  Council  in  1986  in  order  to  protect  the  forests  in  the 
Community against atmospheric pollution and hereby to contribute, in particular, to safeguarding 
the productive  potential  of agriculture. 

In  order  to continue the observations which have started on the Community networks, to allow 
the completion of the intensive forest ecosystems monitoring network and the full  implementation 
of  all agreed  common  monitoring  activities  on this network,  to evaluate the monitoring  results 
obtained from the two networks and to derive the necessary conclusions and  recommendations 
for  the  future  protection  and  management  of  European  forests,  it  is  proposed  to  extend  the 
existing scheme for five additional years (1997 to 2001). 

Period  covered 

First  period  of  5 years (Council Regulation  (EEC) No. 3528/86):  1987 - 1991; 
second  period  of  5 years (Council  Regulation (EEC) No. 2157/92):  1992-1996. 
Proposed  extension:  1997 - 2001. 

5. 

CLASSIFICATION OF EXPENDITURE OR  REVENUE 

None mandatory  expenses. 
Differentiated  appropriations. 
Type of revenue aimed: none. 

7OJ No  L 326,  21.11.1986 

8OJNoL  165,  15.6.1989 

9OJ  No  L 217.  31.7.1992 

6. 

TYPE OF EXPENDITURE 

Reimbursement  of  50%  of  effective  expenditures  made  for  the  carrying  out  of  projects 
previously approved  by the Commission after  consultation of the Standing Forestry Committee. 
Coordination and monitoring of the scheme: Expert meetings, technical and scientific  assistance 
to the Commission for the processing and evaluation of data and the reporting (see also point 7). 

7. 
7.1 

FINANCIAL IMPACT 
Calculation  of the total  cost of the scheme 

A maximum financial contribution  (co-financing)  of  50% of the approved  expenses is possible 
for  projects  submitted  by the Members States to the Commission in the fields of 

periodic  inventory, 
intensive and continuous monitoring  of forest  ecosystems, 
experimental  and pilot  projects. 

The  Commission  is  responsible  for  coordinating  and  monitoring  the  scheme.  In  this  context 
activities  such  as  expert  meetings,  the  processing  and  evaluation  of  monitoring  data  and  the 
reporting  of  monitoring  results, including technical and  scientific  assistance to the Commission 
in this field are financed in full  (100%).  \ 

Estimated Community costs per year during extension period (budget line: B2-5150, FORESTS): 

intensive monitoring  (Reg. No.  1091/9411) 

-  periodic  inventory  (Reg. No.  1696/8710) 
- 
-  experimental  and pilot projects  (Reg. No. 3528/86) 
-  evaluation,  coordination,  etc. 

Total costs (per  year) 

Total  costs for  the proposed  extension  period 

1,0 MECU 
5,0 MECU 
1,5  MECU 
0,5 MECU 

8,0 MECU 

40,0 MECU 

This  amount  is  estimated  necessary  for  the  continuation  and  the  full  implementation  of  the 
Community  scheme taking  into account the recent  extension of the EU and the results obtained 
during  the past  10 years period  of the scheme. 

The extension of the Union by Austria, Finland and Sweden lead to a doubling of the forest  area. 
Consequently, the activities in the field of the protection of forests against atmospheric pollution 
including notably the extension of the monitoring  networks (installation  of plots), the efforts  of 
data collection (observation  and analysis) and the carrying out of pilot and demonstration  projects 
have  increased  considerably,  as well as the need for  co-financing  by the Community. 

10OJ  No  L  161, 22.6.1987 

"OJ  No  L  125,  18.5.1994 

11 

7.2  Estimated  breakdown of appropriations for commitment  for the period  1997 to 2001 

by typ of action  (in  MECU) 

breakdown 

1997 

1998 

6,0 

1,5 

0,5 

article 2 
projects12 

article 4 
projects13 

coordination 
evaluation 
etc. 

6,0 

1,5 

0,5 

1999 

6,0 

1,5 

0,5 

2000 

6,0 

1,5 

0,5 

= s = a a ro 
200! 

6,0 

1,5 

0,5 

total 

30,0 

j 

7,5 

2,5 

total 

8,0 

8,0 

8,0 

8,0 

8,0 

40,0 

7.3  Estimated breakdown of appropriations for commitment and payments for the period 

1997 to 2004  (in MECU)14 

approp.  for 
commitments 

approp.  for 
payments 

1997 

1998 

1999 

2000 

2001 

2002 

2003 

2004 

total 

1997 

1998 

8,0 

8,0 

1999 

8,0 

2000 

8,0 

2001 

8,0 

0,5 

2,5 

2,5 

2,5 

0,5 

2,5 

2,5 

2,5 

0,5 

2,5 

2,5 

2,5 

0,5 

2,5 

2,5 

2,5 

8,0 

8,0 

8,0 

8,0 

0,5 

2,5 

2,5 

2,5 

8,0 

total 

40 

( 

9,5 

3,0 

5,5 

8,0 

8,0 

7,5 

5,0 

2,5 

40,0 

8 FRAUD PREVENTION MEASURES 

Field  inspections are carried  out  on the execution of the accepted  projects  and financial aspects 
are verified  in detail. 

Extensive and intensive monitoring projects according to art. 2 of Reg. No. 3528/86 

pilot and demonstration projects according to art. 4 of Reg. No. 3528/86 

4 
rough estimate based on already available experience 

12 

9  ELEMENTS OF COST EFFECTIVENESS ANALYSIS 
9.1  Specific  objectives  and target  group 
9.1.1  Specific  objectives 

Based on the general objectives (see chapter 4) the following specific objectives have been aimed 
and  reached: 
- 

the  establishment of  a  Community-wide  network of  observation points  and  the execution of 
periodic  surveys  of forest  damage  (including a  soil  and foliar  survey) following  common 
methodologies (Council Regulation (EEC) No. 3528/86 and Commission Regulation (EEC No. 
1696/87). 
This  network  is recognized  as being  of  vital  importance  in terms  of  assessing the  extent  of 
forest  damage and monitoring  forest  condition  in Europe. 
From  more than  3000 plots covering the whole forest  area of the Community  information  is 
collected  and  data  are  submitted  to  the  Commission  (annual  forest  damage  survey,  soil 
condition  inventory,  survey of the chemical  content of  needles and  leaves). In  most Member 
States  a  more  intensive  grid  is  applied,  using  the  same  methodology  for  the  assessment of 
forest  condition.  The results of the surveys are published  on yearly  basis in the series of  the 
Forest Condition  in Europe. 

- 

the establishment of a netY>ork of intensive forest  ecosystem monitoring plots, the execution of 
surveys on  these plots following  common methodologies for  sampling and analysis and the 
evaluation and  reporting of  monitoring results (Council Regulation (EEC) No.  2157/92 and 
Commission Regulation (EC) No. 1091/94). 
In  1995 the  installation  phase of the  intensive monitoring  network  was completed  to a large 
extend. Throughout  the EU approximately  450 plots have been installed. Additional plots are 
expected  to  be installed and monitored  in certains parts of the EU which will  lead to a more 
representative  coverage  of  the  Community's  forest  regions.  After  an  initial  phase  covering 
mainly the selection and  installation of the intensive monitoring plots and the development of 
systematic collection  and analysis of samples (1992 to  1995) this network  is now entering  its 
fully  operational  phase. The Commission played an important role in the development of this 
programme  and will  have to coordinate  the common  activities in this field. The Commission 
also undertakes the processing and evaluation of the data submitted, as well as the preparation 
of periodic  reports 

-  co-financing  of  experiments  in  the  field  and  pilot  or  demonstration  projects  (Council 

Regulation (EEC) No. 3528/86) 
Member States are encouraged to undertake projects to improve the knowledge on the impacts 
of atmospheric  pollution  on  forest  ecosystems, to  improve observation  methods and to  study 
possibilities  for  restoring  damaged  forests.  Between  1987 and  1996  more  than  200  projects 
have been  co-financed  in  this field. The  results of these projects  have been  used to  improve 
observation and monitoring methods (including common methods for the intensive monitoring; 
e.g. remote  sensing applications, soil  solution  analysis) and to devise restoration  methods  for 
damaged  forests. 

9.1.2  Target  group 

The  Community  scheme  aimes  at  the  protection  of  Community's  forests  against  atmospheric 
pollution  in  order  to  maintain  their  economic,  social  and  ecological  functions  for  the  whole 
Community  population  and also for  future  generations. 

Protection  of  the  economic value of forests:  Forest  owners  as  well  as  the  forest  and  timber 
industry (including employment in the forestry and timber sector) depend on good forest condition 

and  sustained  supply of timber.  In  addition  several other  sectors (e.g. transport,  tourism) are to 
be mentioned  in this context. 

Protection of  social  value of forests:  Directly  or  indirectly  the  whole  population  (and  future 
generations) takes profit,  inter alia, from the following  "services" of forest  ecosystems: 
-  protection  of the recreational  functions  of  forests, 
-  maintanance of rural  employment. 

Protection of ecological value of forests: 
Directly or indirectly the whole population also takes profit from the following values of  forests: 
-  protection  of ground  water, 
-  protection  against avalanches, rockfalls  etc. (population  in mountainous regions), 
-  protection  against climatic change (forest  ecosystems are considerable  sinks of carbon;  forest 
damage and forest decline lead to emissions of C02 which is expected to increase the so called 
"greenhouse  effect"). 

In addition  forests are safeguarding  a lot of varieties of plants and animals. This contribution  to 
the conservation  of biodiversity  cannot be expressed  in financial  terms. Nevertheless this value 
is of vital  importance. 

9.2  Justification  of the  action 

Forest damage  is caused by a number of  complex factors.  Apart from the continuing  impact  of 
transboundary  air pollution,  it is to be feared  that  future  pressures on  forests  are  likely  such  as 
for example climatic changes arising from global warming. The benefits of an efficient  protection 
of  forests  against  these  transboundary  damage  factors  must  be  considered  as  vital  for 
environmental as well as for socio-economic reasons, with effects  on the Community as a whole. 

At the beginning of the eighties forest  damage caused by atmospheric pollution  lead to  important 
international  activities, including the establishment of the International  Cooperative Programme 
on Assessment and Monitoring of Air Pollution  Effects  on Forests (ICP Forests). In  1986, at the 
International  Conference on Trees and Forests (SILVA, Paris), the European Heads of States and 
Governments  insisted  on  the  pressing  need  to  act  in  union  beyond  national  borders  for  the 
conversation  of forests. The common responsibility for and the transboundary character of  forest 
protection  was  also  recognized  in  1990  in  Strasbourg  by  most  European  countries  and  the 
European  Community at the  1st Ministerial Conference  on the Protection  of Forests  in Europe. 
In the following  years the general awareness of the fragility of many European  forest  ecosystems 
justified  the continuation  and the strengthening of the activities already  undertaken. 

At  the  Strasbourg  Conference  in  1990, the  participating  States and  the  European  Community 
adopted  a  Resolution  which,  among  others,  recognized  the  necessity  of  identifying  long  term 
trends  in  the  condition  and  health  of  forests  and  strengthening  efforts  in  the  forest  ecosystem 
monitoring. Following this Resolution, such monitoring  should rely simultanously on two  levels 
of permanent  sample plots: sample plots for  elementary  systematic monitoring  and sample plots 
for  intensive monitoring. 

In  1992 (Council Regulation (EEC) No. 2157/92) the Community action in this field was adapted 
by the Council in order to help Member States to implement forest  monitoring as foreseen  by the 
Strasbourg  Resolution and to evaluate  monitoring  results at Community  level. 

As a conclusion  it must be stressed that the role of the Community  in this context is to contribute 
to  the  implementation  of  a transboundary  programme  for  the  protection  of  forests  by  helping 

14 

Member States to carry out the necessary monitoring activities and to implement projects aiming 
to  improve the protection  of forests  against atmospheric  pollution. 

Due to the transboundary  character of the efforts  angaged, a Community intervention  is essential 
for  supplementing  Member  States  efforts  and  allowing  the  processing  and  evaluation  of 
monitoring  data at Community level. In this context the role of the Commission is to coordinate 
the activities, to sythesize and evaluate the results obtained and to further  develop the programme 
together  with the Member States. 

9.3 Follow-up  and evaluation  of the scheme 
9.3.1  Indicators of  performance 

Output indicators 
-  General  implementation/progress  of  the  scheme  (number  of  observation  plots,  number  of 
projects,  provision  of monitoring  data and results of pilot and demonstration  projects etc.), 
-  evolution of requests from Member States for co-financing  of new projects (number of projects 

submitted; financial aid requested/granted), 

-  relations  and  coherence  with  international  programmes  (follow-up  of  the  Ministerial 

Conferences  on the Protection  of Forests in Europe, UNCED etc.), 

-  evolution  of the  relationships with  other  organizations  working  in the field of the protection 

of  forests. 

Impact indicators 
-  Progress  in the knowledge on air pollution  effects  on  forests, 
-  progress  in the development  of methods for the monitoring of air pollution  effects  on  forests 

and the restoration  of damaged  forests, 
information  on forest  condition in Europe as published in the annual Forest Condition Report, 
- 
-  provision of detailed  information  on air pollution effects  on forest  ecosystems (effects  on soil 

chemistry,  physiological  conditions, cause-effect  relationships, etc.). 

9.3.2  Modalities  and  frequency  of  evaluation 

The  progress  of  work  is  analysed  permanently  by  the  Commission  and  its  Standing  Forestry 
Committee (Working  Group  on Atmospheric Pollution). 

The  requests  of  the  Member  States  for  co-financing  of  projects  (number  of  projects,  financial 
support requested, nature and aims of projects) are verified  annually. The progress of co-financed 
projects  is monitored  systematically and field inspections including financial control  are carried 
out. 

The results  of  the different  parts of  the  scheme are reviewed  permanently  and  published  in the 
annual  Report  on  Forest  Condition  in  Europe  and  additional  technical  reports.  Possible 
improvements and further  development of the scheme are discussed within the Standing Forestry 
Committee and  its technical  subgroups. 

10  Administrative  costs 

-  One  national  expert  (full  time), 
-  one official  (category  A; part time), 
-  one official  (category  B; part time), 
-  one official  (category  C, part time). 

15 

Proposal  for a 

B. COUNCIL REGULATION (EC) 

amending  Regulation  (EEC) No 2158/92  on protection  of the Community's  forests 
against fire 

EXPLANATORY  MEMORANDUM 

1. Community  measures  to  protect  forests  against  fire,  provided  for  by  Regulation  (EEC) 
No 2158/92  (on  the  basis of  Articles 43  and  130s(l)  of the  Treaty)  expire  on  31 December 
1996. The Commission, as provided  for  in its  1996 Programme  (agriculture  and fisheries),  is 
to submit to Parliament  and the Council a proposal  for  the extension of these measures for a 
new five-year period  (1997-2001). 

2.  The aim of the Regulation is to contribute to the efforts  of the Member States to prevent  forest 
fires while  at the  same time  ensuring  that  forestry  measures  financed  by the  Community  in 
areas at risk from fire are consistent. It also provides for the development of close cooperation 
between the Member States and the Commission within the Standing Forestry Committee and 
for  the  creation  of  a  Community  system  of  information  on  forest  fires  to  permit  better 
evaluation  of measures to protect  forests  against fire. 

3.  At  the end  of the five years of application, nearly  one half  of Community  forests  have been 
classified as areas at risk from fires. The Member States concerned have submitted their forest-
fire protection  plans for  the areas at risk.  Assistance of ECU 63 million  has been granted  for 
more than 480 fire-prevention projects  provided for  in the protection  plans. Community-wide 
cooperation  has  been  established  to  analyse  the  causes  of  fires  and  to  improve  protection 
systems. The results of the Community system of information  on forest fires show that this is 
an excellent tool for  the evaluation  of measures. 

4.  Extension  of the measures complies with the principles of subsidiarity and  proportionality: 

-  The measures have shown their  effectiveness  in helping to  improve the protection  systems 
of  the  Member  States,  which  have  been  brought  up  to  date,  in  particular,  through  the 
Community  system of information  on forest fires (see implementation  report and  financial 
statement). 

-  A considerable problem  still remains for  the Union's forests  and Community measures are 
a necessity. Fires continue to cause serious damage to ecosystems (erosion,  desertification), 
cause considerable  economic losses in agriculture  and forestry  and, of course, threaten  the 
safety  of  people  and  property.  Fires  restrict  the  long-term  development  of  60 million 
hectares  of  Community  forests  and  could  also  affect  the  European  climate  (loss  of 
significant  carbon-storage  capacity,  production  of  greenhouse  gases),  showing  the  cross-
border  nature of this problem. 

-  An extension of the measures will permit continued  financial  support for  national  measures 
taken by the Member States to protect forests, while providing a suitable framework  for the 
pursuit  of  Community and  inter-regional measures to  achieve  a  better  evaluation  of  the 
origin  of fires and of preventive  measures. 

5.  The  consistency  of  the  measures  and  their  extension  with  Community agricultural and 
structural policies  is ensured  by asking the Member States for  guarantees that afforestation  in 
areas  at  risk  carried  out  through  Community  funding  is  protected  against  forest  fires. 
Consistency with  environmental policy  is also ensured; the measures directly  fulfil  a number 
of the commitments made by the Community in Rio de Janeiro at the  1992 World  Conference 
on Environment and Development and at the two pan-European  ministerial conferences  on the 
protection  of European  forests  (Strasbourg  in  1990 and  Helsinki  in  1993). 

17 

COUNCIL REGULATION (EC) No 

q^joiSG  (eus) 

of 

amending Regulation (EEC) No 2158/92 on protection  of the Community's  forests  against fire 

THE COUNCIL OF THE EUROPEAN UNION, 

Having regard  to the Treaty establishing the European  Community, and  in particular  Article  43 

thereof, 

Having regard  to the proposal from the Commission1, 

Having regard  to the opinion of the European  Parliament2, 

Having regard  to the opinion  of the Economic and  Social Committee3, 

Whereas  the  first  period  of  application  of  Regulation  (EEC)  No  2158/92  of  23 July  1992  on 
protection  of the Community's  forests  against fire4 expires on 31 December  1996; 

Whereas forests play an essential part in maintaining fundamental  balances, particularly as regards 

the  soil,  water  resources,  climate,  flora  and  fauna;  whereas  those  ecological  balances  are 

indispensable  for  sustainable agriculture  and the management  of rural  areas; 

Whereas the conservation  of the forest  ecosystems is important  for  its economic, ecological  and 

social  functions  and  contributes  in  particular  to  safeguard  the  social  function  for  those  people 

working  in agriculture  and  in rural  areas; 

1 OJ No C 
2OJ No C 

'OJ  No C 
4O J N o L 2 1 7,  31.7.1992, p. 3. 

18 

Whereas  the  European  Union  attaches  particular  importance  to  the  protection  of  its  forest 

resources; whereas  it has undertaken  international  commitments on the sustainable development 

of forests and the protection of forest regions, in particular during the United Nations Conference 

on the  Environment  and  Development  in Rio de Janeiro  in  1992 and  at the two  Pan-European 

Ministerial  Conferences  on  the  protection  of  European  forests  in  Strasbourg  in  1990  and  in 

Helsinki  in  1993; whereas  the  Community  scheme for  the  protection  of  forests  against  fire  as 

provided  for  by Regulation (EC) No 2158/92 helps to fulfil  those undertakings; 

Whereas, pursuant to that Regulation, 60 million hectares of forest,  equivalent to about a half of 

European  forests,  have been classified  as fire-risk zones; 

Whereas fires continue to restrict  the sustainable development of  forests  in fire-risk zones, thus 

reducing  the  contribution  of  forests  to  the  development  of  sustainable  agriculture  and  the 

management  of  rural areas; 

Whereas  protecting  forests  against fire therefore  directly  contributes to  the achievement  of  the 

objectives  laid  down  in Article 39 (1) (b) of the Treaty; 

Whereas  the  Community  system  of  information  on  forest  fires  established  under  Article  5  of 

Regulation (EC) No 2158/92 has permitted the development of Community cooperation on  forest 

fires;  whereas  the  development  of  that  system  will  provide  an  effective  instrument  for  better 

evaluating  forest-fire  protection  measures and for  better analysing the causes of fires; 

Whereas, therefore,  the Community scheme for  the protection  of forests  against fire defined  by 

Regulation (EEC) No 2158/92 should be continued, in particular to strengthen the consistency of 

forest  measures  financed  in fire-risk zones, to reinforce  the fight against the causes of fires and 

to improve prevention and monitoring systems; whereas, therefore,  provision should be made for 

extending the scheme laid down in Regulation (EC) No 2158/92, as amended by this Regulation, 

for  five  years  from  1 January  1997, thus bringing  the duration  of  the  programme  to  ten  years 

from  1 January  1992; 

Whereas  it  is  estimated  that  ECU 70  million  will  be  necessary  to  implement  the  programme 

during the second  period, 

HAS ADOPTED  THIS  REGULATION: 

Article 1 

Regulation  (EEC) No 2158/92 is hereby amended  as follows: 

Article  10 (1)  and (2)  are replaced  by the  following: 

"1.  The scheme shall run  for five years from  1 January  1997. 

2.  The amount  of Community  financial  resources  deemed  necessary  for  the  implementation  of 

the scheme  is ECU 70 million  for  the period  1997-2001." 

Article 2 

This Regulation  shall  enter  into force  on  the third  day  following  its publication  in the  Official 

Journal  of the European  Communities. 

This Regulation  shall be binding  in its entirety  and directly applicable  in all  Member States. 

Done at  Brussels, 

For the Council 

20 

REPORT ON THE IMPLEMENTATION OF REGULATION (EEC) No 2158/92 ON 

PROTECTION OF THE COMMUNITY'S FORESTS AGAINST FIRE 

1. The aim  of Council  Regulation  (EEC) No 2158/925 was to help Member States  improve  the 

protection  of their  forests  against fire by: 

-  concentrating Community  preventive  measures in areas at risk from fire, 

-  asking Member States to submit to the Commission their overall forest-fire  protection plans, 

-  reserving Community  financing  for fire-prevention projects and projects to analyse causes 

provided for in the plans and varying the Community contribution on the basis of the degree 

of risk, 

-  making funding  for all Community forestry measures in high- and medium-risk areas subject 

to the approval  of the plans, 

-  creating  a  Community  system  of  information  on  forest  fires  while  improving  national 

systems; the detailed  rules of application  were laid down by Commission Regulation  (EC) 
No 804/946. 

There  is close cooperation  with the Standing Forestry  Committee. 

Results  of  implementation  of the  measure 

2. Areas at risk from fire (Article  2 of the  Regulation) 

The  Commission  has  approved  the  lists  of  areas  of  high  and  medium  risk  submitted  by 

Portugal, Spain, France, Italy, Greece and Germany (figure  1  in the Annex), making a total of 

60 million  hectares  at risk from fire (nearly  one half  of the Community's  forests),  of  which 

60%  is privately  owned  and  40% publicly  owned. 

3.  Forest-fire protection plans (Article  3 of the  Regulation) 

The  Commission  has  issued  favourable  opinions  on  79  of  the  forest-fire  protection  plans 

submitted  by  the  Member  States.  These  plans,  covering  almost  all  the  areas  of  high  and 

5 OJNo  L217,  31.7.1992. 
6O J N o L 9 3,  12.4.1994. 

21 

'e 

n 

medium risk, are particularly  important  tools, describing the measures taken  by the Member 

States  to  protect  their  forests,  thus  giving  improved  guarantees  of  the  success  of  forestry 

measures co-financed  by the European  Union. 

4. Preventive measures (Article  4 of the Regulation) 

For the period  1992-96,480 projects submitted by the Member States were approved, involving 

a total of ECU 62.9 million. The following table gives a breakdown of the numbers of projects 

approved  and the amounts involved  for  each Member State over the period  concerned. 

D 

EL 

E 

F 

IRL 

/ 

P 

TOTAL 

3.8 

12.8 

11.7 

11.5 

0.1 

12.7 

10.3 

62.9 

38 

54 

57 

199 

3 

40 

89 

480 

Assistance 

granted 

(ECU 

million) 

Number of 

projects 

?"> 

Itemised  breakdown  of cost 

Measures 

Assistance granted  (ECU 

% 

million) 

Projects  to combat causes and 

information  campaigns 

Prevention  projects 

Monitoring projects 

Information-system  projects, etc 

Total 

8,0 

30,3 

18,6 

6,0 

62,9 

13,0 

48,0 

30,0 

9,0 

100,0 

A total  of  31%  of  the  demand from Member  States was  satisfied.  During the  first  five 

years, 858 projects were submitted  for  which a total of ECU 201 million was requested. 

Quantitative details of a number of measures funded: 

*254  information campaigns, 11 437 ha of fire-breaks,  13 534 ha of shrub  -clearance, 

12 005 km of tracks, 1 152 water supply points,  8 848 communication posts,  151 watch 

towers, 5 226 persons trained,  etc, 

•97% of the assistance was granted in areas of high risk and 3% in areas of medium risk, 

•5%  of the assistance was granted for  publicly  owned forests,  10% for  privately owned 

forests and 85% in mixed areas  (public/private). 

Qualitative details of a number of measures funded, by way of examples: 

•in Portugal, the measures meant that 20% of expenditure on prevention could be part -

financed whereas the Structural Funds provide practically no  assistance: 

•in France, the  Regulation has  become an  essential means of  allowing professional 

organizations responsible for privately owned forests in western France  to finance fire-

prevention measures; 

•in Spain,  the  measures have permitted  the financing of  major national  information 

campaigns targeting the  rural population  to  make them aware  of  risky  agricultural 

practices  (range  fires); 

•in  Germany,  in  the  new  Lander, the  measures have  in particular  allowed for  the 

refurbishment of practically the whole forest-fire surveillance network,  which had become 

completely outdated. 

All the measures for which assistance was granted were included in the overall protection 

plans  as provided  for  in Article 4(3) of  Regulation  (EEC) No 2158/92. There  seems to 

have been a fairly  even regional distribution and this reflected  the applications made by 

the Member  States. Several  studies into the causes of fires  were carried out in Portugal, 

Spain, Greece and France (13% of the appropriations allocated for the Regulation). The 

projects  are  high  added-value  projects.  The  cost  is  small  but  their  potential  multiplier 

effect  is considerable. A total of 48% of the appropriations were allocated to prevention 

infrastructures  and 30% to monitoring operations. These two types of measure are of vital 

importance  for  increasing  the effectiveness  of fire-fighting measures  once a fire breaks 

out. 

Giving  consideration  to  the  whole  system  of  protection,  i.e.  studies  of  the  causes, 

improving  preventive  measures,  monitoring  and  measures  to  fight  fires,  is  therefore 

essential  to achieve more effective  use of national  and Community  funding. 

5.The  Community information system on forest-fires  (Article  5 of the  Regulation) 

The  Community 

information 

system 

on 

forest-fires 

currently 

covers 

211  provinces/departments  of  Portugal,  Spain,  France,  Italy  and  Greece.  It  contains 

information  on 400 000 fires recorded  between  1 January  1985 and  31 December  1994 

involving  a  total  of  five  million  hectares.  The  information  on  the  provinces  in  those 

Member  States not yet covered  as well as for  Germany  will  be processed  shortly. 

24 

Analysis of this information  first  of all shows that forest  fires  are not a rarely  occurring 

disaster  but rather  a daily problem  for  which the Member  States must have  appropriate 

protection  strategies: in ten years, no more than twenty days have passed without a fire; 

on some days, a fire breaks out every two minutes. 

Over  the  past  ten  years,  there  has  been  a  steady  improvement  in  the  effectiveness  of 

measures  to  combat  fires  implemented  by  the  Member  States  and,  therefore,  by  the 

European Union. The area burned appears to be on a downward trend (figure 2) and the 

area affected  by each fire has shrunk  sharply  {figure  3). The time taken by fire-fighting 

teams to intervene has been reduced  (figure 4,) as has the duration of fires. 

Nevertheless, the marked increase in the number of fires (figure 5) is worrying and shows 

the need  to  strengthen  measures  to  combat  the cause  of fires, particularly  as  still  more 

than  53% of  fires  are of  unknown  origin. 

The  information  system  can  give  useful  clues to  the types  of  Community  and  national 

measures to be developed in different  regions, the situation obviously varying from one 

region to another (figure 6). Generally speaking, the summer is the period of highest risk 

of fires (67% of fires and  79% of  the  area  affected)  and  during  that  period  monitoring 

and fire-fighting systems must be at their most effective.  However, in more than  10% of 

provinces, particularly  in mountain  areas, fires mainly break out in winter,  showing that 

specific  causes are at work  which must  be addressed  with  specific  measures. 

In  those  regions  where  the  problem  is  the  number  of  fires,  more  importance  must  be 

given  to  attacking  the  causes  of  fires.  In  others,  where  the  average  size  of  the  areas 

affected  by fires is large, protective  measures must be  strengthened. 

The  Community  system  of  information  on  forest  fires  was  taken  as  the  basis  for  the 

creation  of  a  Europe-wide  network  of  databases  on  forest  fires  by  the  Strasbourg 

ministerial  conference  on the  protection  of  European  forests  in  1990.  The  report  of  the 

preparatory  study  for  the  installation  of  the  system  was  published  by  the  Office  for 

OS 

Official  Publications  of  the  European  Communities  in  April  1996. 

It  reflects  the 

following  observations and prospects. 

^.Contacts with agricultural organizations: although the origin of a large number of  fires 

is  to  be  found  in  the  profound  changes  taking  place  in  rural  society,  farmers  have  an 

essential  roles  to  play  in  protecting  rural  society  and  forests.  At  the  initiative  of  the 

Spanish  Young  Farmers'  Association  (ASAJA  -  Sevilla)  and  in  cooperation  with 

agricultural  organizations,  an  important  seminar  (co-financed  under  Regulation  (EEC) 

No 2158/92)  was  held  in  Seville  in  October  1993  with  the  aim  of  developing 

the 

important role played by farmers and reducing the negative effects of certain stockfarming 

practices. It brought together, for the first time, as well as farmers' unions, representatives 

from the Standing Forestry Committee, the Commission and the European Parliament and 

it is an initiative the participants would  like to pursue. 

Conclusions  on the implementation  of Regulation  (EEC)  No 2158/92 

The Community measures, complementing those of Member States, have helped improve 

measures  to  prevent  forest  fires  and  provide  better  guarantees  and  better  direct 

Community  funding  for  forest  areas at risk  from  fire. 

Implemented  in close cooperation with the Standing Forestry Committee, they have also 

led to a greater understanding of why fires break out,  in particular through the creation 

of the system of information  on forest fires, which is an effective  tool for  evaluating the 

measures implemented. The system also provides guidelines for the development of new 

forest-protection  strategies. 

26 

FINANCIAL STATEMENT 

1.  TITLE  OF OPERATION 

Extension  of Community  measures to protect forests  against fire. 

2.  BUDGET  HEADING  INVOLVED 

B2-5150 Forests 

3. 

LEGAL BASIS 

Articles 43 of the Treaty. 

Regulation (EEC) No 2158/92 of 23 July  1992 on protection of the Community's 
forests  against fire7, which expires on 31 December  1996. 

The proposal  is to extend the Regulation for  a further five years  (1997-2001). 

4.  DESCRIPTION OF OPERATION 

4.1.General  objective 

The aim of the measures is to improve the protection of European forests  against 

fire.  One  third  of  European  forests  are  threatened  by  fire,  which  each  year 

destroys  thousands  of  hectares,  with  serious  economic,  ecological  and  social 

damage. 

7O J N oL  217, 31.7.1992. 

27 

The extension of Regulation (EEC) No 2158/92 is intended to pursue the measures 

to improve forest-fire  prevention and monitoring  systems and better combat the 

causes of  fire. 

4.2  Period covered 

1 January  1997 to 31 December 2001. 

5.  CLASSIFICATION  OF  EXPENDITURE 

5.1  Non-compulsory  expenditure  (NCE) 

5.2  Differentiated  appropriations  (DA) 

6.  TYPE  OF  EXPENDITURE 

See point 7. 

7. 

FINANCIAL  IMPACT 

7.1. 

Method  of calculating  total  cost of  operation 

For projects and programmes submitted by the Member States (studies of 

the  causes of  fires  and  information campaigns, prevention  of  fires  and 

monitoring),  a  maximum  Community  contribution  of  30%  or  50% 

depending on the degree of  fire risk in the region  concerned. 

For projects submitted by the Member States for pursuing the creation of 

the information system on for est fires, a maximum Community contribution 

of  15%, 30% or  50% depending  on the degree  of fire risk  in the  region 

concerned. 

28 

For  measures to  coordinate,  evaluate  and  monitor  the  measures, a 

Community contribution of 100%. 

7.2. 

Itemised  breakdown  of cost 

(ECU million/year for  EC) 

Measures 

1997 

1998 

1999 

2000 

2001 

Total 

Projects  to combat causes  and  information 

campaigns 

2.0 

2.0 

2.0 

2.0 

2.0 

10 

Prevention  projects 

6.5 

6.5 

6.5 

6.5 

6.5 

32.5 

Monitoring  projects 

4.5 

4.5 

4.5 

4.5 

4.5 

22.5 

Information-system  projects 

0.3 

0.3 

0.3 

0.3 

0.3 

1.5 

Coordination,  evaluation  and  monitoring 

0.7 

0.7 

0.7 

0.7 

0.7 

3.5 

Total 

14.0 

14.0 

14.0 

14.0 

14.0 

70 

Total  for  the period  1997-2001: ECU  70 million. 

The  proposed  allocation  between  the  different  types  of  project  reflects  that  in  the 

applications  submitted  by  the  Member  States  during  the  five  years  of  application  of 

Regulation  (EEC) No 2158/92. 

29 

7.3. 

Indicative schedule of appropriations 

(ECU million/year for  EC) 

year n 

n+  1 

n + 2 

1997 

1998 

1999 

n + 3 

2000 

n + 4 

2001 

TOTAL 

14 

14 

14 

14 

14 

70 

6 

5 

6 

2 

5 

5 

1 

3 

9 

14 

14 

14 

14 

14 

14 

14 

6 

11 

12 

41 

70 

Commitment 

appropriations 

Payment 

appropriations 

year n 

n + 1 

n + 2 

n +  3 

n  + 4 

Subsequent financial 

years 

TOTAL 

8. FRAUD PREVENTION MEASURES 

On-site  inspections  to  verify  the  implementation  of  projects  co-financed  by  the 

Community  and checks on financial aspects. 

9.  ELEMENTS  OF  COST-EFFECTIVENESS  ANALYSIS 

9.1. 

Specific  and quantified  objectives 

The  long-term  aim  of  Community  forest-protection  measures  is  to  help 

Member  States reduce  the number  of fires (by  attacking  the  causes)  and 

the areas burned (by improving prevention, monitoring and fire-fighting). 

Target population 

Forest  fires  pose  a  serious  danger  to people  and  property,  including  the 

populations of areas at risk from forest fires and tourists from the northern 

regions  of  the  Community.  Private  forest  proprietors,  local  and  regional 

authorities  and  those  involved in the  forestry  industry  are  also  seriously 

affected  by the destruction  of forests  by fires. 

9.2. 

Grounds  for  the  operation 

9.2.1 Need for  Community financial aid 

The  adoption  of  Regulation 

(EEC)  No 2158/92  permitted 

the 

implementation  of  a Community  strategy  to  protect  forests  against fires, 

providing  the  Member  States with  Community  assistance  for  preventive 

measures (a Community contribution of around  10% to national measures, 

giving  protection  to  five  million  hectares  of  forest)  and  building 

Community-wide  cooperation  to  improve  protection  systems  via  the 

creation  of an information  system. 

Over the past ten years, the total  area burned  appears to have been  on a 

downward  trend,  but the number  of fires is increasing.  The  average  size 

of  fires  has  therefore  been  considerably  reduced  (see  point  5  of  the 

implementation report) The Community measures, which are now in their 

tenth year, have contributed to the efforts of the Member States to improve 

national  protection  systems. The number  of fires remains  worrying.  The 

study  of their  causes and the  means to combat them therefore  remains  a 

priority.  The measures must consequently  be  continued. 

The  extension  of  the  measures  complies  with  the  principles  of 

subsidiarity,  solidarity  and  consistency;  it complements  the  preventive 

measures taken by the Member States and should help introduce preventive 

measures in a further  several million hectares. 

Community-wide cooperation in this area will permit the achievement of 

an  inter-regional  approach  to  forest  fires,  particularly  to  the causes  of 

fires,  a high added-value measure. Cooperation with farmers' unions within 

the Community should also help improve the management and protection 

of rural areas. 

The measures are consistent with: 

*  agricultural  and  structural policies', the  forest-fire  protection  plans 

should  guarantee  better  protection  for  afforestation  and  reafforestation 

carried out as part of new, active afforestation  measures financed by the 

European Union (approximately  1.5 million hectares planned over eight 

years in areas at risk from fires); 

*  environmental  policy,  by  contributing 

to  the  fulfilment  of 

the 

Community's international commitments on the sustainable development 

and protection  of  forests. 

The  cross-border  impact  of  forest  fires  for  the  whole  of  the  European 

Union must not be forgotten. The production of C02 in forest fires plus the 

loss of capacity to absorb the gas and immobilize carbon as a result of the 

sudden disappearance of biomass and a change in land-use also contribute 

to the greenhouse  effect. 

9.2.2 Choice of  ways and means 

Preventive  measures 

32 

In the opinion of  all the experts, in areas at risk, prevention is the main 

priority. The Member States affected by this problem all apply, in varying 

degrees, preventive measures. The budgets allocated to such measures are 

often  fairly  small considering the size of the problem, due, in particular, 

to the low-level profitability of a large part of the forests at risk, especially 

that of privately owned forests, and the high cost of fire-fighting provision. 

A number of Community structural programmes have included preventive 

measures but the areas covered by regional-development measures do not 

necessarily include all those areas at risk from fire. The amount of funding 

applied  for  by  the  Member  States  under Regulation  (EEC) No 2158/92 

clearly shows that the preventive measures covered by structural assistance 

do not cover all the needs. 

The  information system 

National information systems on forest fires do exist. In the opinion of the 

experts, the value of the Community information system is incontestable, 

because of its Community-wide and inter-regional approach. Furthermore, 

the measure establishes a link with other Community policies (environment 

and agriculture). 

Factors of uncertainty 

Climatic problems (serious  droughts  and strong  winds),  the pressure of 

tourism and the abandonment  of farming on  increasingly  large areas  of 

land may also  increase the areas vulnerable to  fire. 

33 

9.3.  Monitoring  and evaluation  of the operation 

9.3.1 Performance  indicators 

*  Output indicators (measuring activities used) 

General  progress  made  in  implementing  measures,  annual  change  in 

applications  from  Member  States,  development  of  the  international 

impact  of  the  measures,  development  of  relations  with  organizations 

involved  in the protection  of forests  against fire. 

*  Impact indicators (measuring performance against objectives) 

Development of the area of the Community at risk from fire, evaluation 

of protection plans submitted by the Member States and consistency with 

forestry  measures funded  by the EU, number of projects and amount of 

assistance  granted  to  each  Member  State,  assistance  granted  for  each 

type of measure and degree of risk and the development thereof, analysis 

of  the  indicators  provided  by  the  information  system  itself  and,  in 

particular,  changes  in the number  of fires and the  area  burned  in each 

Member  State,  distribution  of  fires  according  to  the  type  of  surface, 

analysis of causes. 

9.3.2  Details  and  frequency  of planned  evaluations 

The  system  of  information  on  forest  fires,  information  supplied  by  the 

Member  States, data gathered  in the implementation  of the Regulation  in 

areas  at  risk  from  fire,  the  plans  and  the  projects  will  permit  annual 

monitoring  of the factors  of  incertitude  and the performance  indicators. 

34 

1 0.  A D M I N I S T R A T I VE  E X P E N D I T U RE 

The work will be carried out by the permanent staff currently responsible for the 

measures, i.e.  one A- and one B-grade  official. 

Expenditure on the provision of services, in particular certain technical analyses, 

for  the  monitoring  and  evaluation  of  forest-fire  protection  plans  and  for  the 

continuation of  the work on the creation of the Community  information  system 

will  come  under  Part B  of  the  Budget,  since  they  are  planned  as  part  of  the 

coordination of the Regulation. 

3:> 

ANNEX 

%> 

COMMSSKM EUROPEENNE 
onecnoM g e o wc oc L'AORKULIUM 

Adion* ipfcftauM «n nfcu « «• 
vini 

D  low  risk 

part medium  risk 

medium  risk 

part high  risk 

high  risk 

Figure  1 - Classification of the territories of the Member States according to the level of fire risk 

SO 000  4-

Figure 2  :  1985-1994, area in hectares  affected  by  fire  each  month 

ÏY 

Figure 3  :  1985-94, average size of  fires  each  month 

Figure  4  :  1985-94,  average time taken  by  fire-fighting services  to  reach the  scene  (in  minutes) 

Figure 5 : 1985-1994, number of forest fires each month 

Figure 6 :1985-1994, proportion of total forest area affected by fire each year (%) 

ISSN 0254-1475 

COM(96) 341  final 

DOCUMENTS 

EN 

14  03 

Catalogue number  :  CB-CO-96-339-EN-C 

ISBN 92-78-06106-9 

Office for Official Publications of the European Communities 

L-2985 Luxembourg 

i-VO