Proposal for a Decision of the European Parliament and of the Council Laying down the Community Environment Action Programme 2001-2010
Date: 2001-01-24
Institutions: European Commission
Subjects: EU programme, action programme, climate change, environmental policy, environmental protection

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Proposal

for a Decision of the European Parliament and of the Council

laying down the

Community Environment Action Programme 2001-2010

(2001/C 154 E/16)

(Text with EEA relevance)

COM(2001) 31 final (cid:151) 2001/0029(COD)

(Submitted by the Commission on 26 January 2001)

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE
EUROPEAN UNION,

(7) The objectives, priorities and actions of this Decision will

apply to an enlarged Community.

Having regard to the Treaty establishing the European
Community, and in particular Article 175 paragraph 3,

Having regard to the proposal from the Commission,

Having regard to the opinion of
Committee,

the Economic and Social

Having regard to the opinion of the Committee of the Regions,

Acting in accordance with the procedure laid down in Article
251 of the Treaty,

Whereas:

(1) A clean and healthy environment

for the
continuing well-being and prosperity of
society, yet
continued growth at a global level will lead to unprece-
dented pressures on the environment.

is essential

(8) Legislation remains central

challenges and full and correct
existing legislation will be a priority.

to meeting environmental
the
implementation of

(9) Integration of environmental concerns into economic and
social policies is essential
to tackle the driving forces
behind the pressures on the environment and further
progress is needed.

(10) A strategic approach is needed to induce the necessary
changes in production and consumption patterns that
influence the state and trends of the environment, incor-
porating new ways of working with the market,
empowering citizens and encouraging better land use
planning and management decisions.

(11) There is

scientific consensus

that human activity is
causing increases in concentrations of greenhouse gases,
leading to higher global temperatures and disruption to
the climate.

(2) The Community’s fifth environmental action programme
(cid:145)Towards Sustainability(cid:146) ended on 31 December 2000
having delivered a number of important improvements.

(12) The implications of climate change for human society and
for nature are severe and necessitate measures to reduce
emissions of greenhouse gases.

(3) A number of serious environmental problems persist and

require further action.

(13) The prevention of climate change can be achieved without
a reduction in levels of growth and prosperity through the
de-coupling of economic growth from emissions.

(4) A prudent use of natural resources and the protection of
the global eco-system together with economic prosperity
and a balanced social development are a condition for
sustainable development.

(5) This programme targets the environmental dimension of
sustainable development, whilst aiming also at a general
improvement in the environment and quality of life in the
European Union.

(6) This environmental action programme establishes

the
environmental priorities
for a Community response,
covering a ten year time period to allow sufficient time
for identification of new measures,
implementation and
evaluation of their effects.

(14) Healthy and balanced natural systems are essential

for

supporting life on the planet.

(15) There is considerable pressure from human activity on
nature and bio-diversity, arising notably from pollution,
the way in which land and sea is exploited.

(16) Soil is a finite resource that is under pressure.

(17) Despite improvements in environmental standards, human
health is affected by the quality of air, water and food and
there
respiratory
evidence of
diseases, cancer and other maladies.

increased allergies,

is

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(18) Pollution from transport, agricultural activities, industrial
effluent and waste management
environmental quality that

processes, domestic
contribute
adversely affects human health.

to the poor

(19) Greater focus is required on prevention and precaution in
developing an approach to protect human health and the
environment.

(20) The capacity of the planet to absorb the demand and
waste resulting from the use of
is under
pressure, with adverse effects arising from the use of
metals, minerals and hydrocarbons.

resources

(21) Waste volumes

leading to loss of
pollution.

in the Community continue to rise,
land and resources as well as to

Article 2

Overall aim and objectives

that will

The Programme

1.
lays down the key environmental
objectives and priorities of the current and a future enlarged
Community
the Community’s
contribute
sustainable development strategy, based on an assessment of
the state and trends of the environment and the identification
of those persistent environmental problems that require a lead
from the Community.

to

facilitate the full

The Programme shall

2.
integration of
environmental protection requirements into other Community
the same time, ensuring that measures
policies while, at
take
proposed and adopted in favour of
account of
and social
the
dimensions of sustainable development, full consideration of
all options and instruments, as well as being based on
extensive dialogue and sound science.

the environment
economic

the objectives of

(22) A significant proportion of waste is hazardous.

(23) Economic globalisation means that environmental action
is increasingly needed at international level, requiring new
responses from the Community linked to policy related to
trade, development and external affairs.

(24) Environmental policy-making, given the complexities of
the issues, needs to be based on sound scientific and
economic assessment, based on a knowledge of the state
and trends of the environment, in line with Article 174 of
the Treaty.

(25) Information to policy makers and the general public has
to be relevant, up to date and easily understandable.

(26) Progress towards meeting environmental objectives needs

to be measured and evaluated.

(27) A review of the progress made and an assessment of the
need to change orientation should be made at the mid
term point of the programme,

The Programme aims at

stabilising the atmospheric
3.
that will not
concentration of greenhouse gases at a level
cause unnatural variations of
the earth’s climate. This will
require making progress towards the long-term requirement
established by the Intergovernmental panel on climate change
to reduce emissions of greenhouse gases by 70 % over 1990
levels, with the following objectives:

(cid:151) ratification of the Kyoto Protocol and meeting of the target
of an 8 % reduction in emissions by 2008-12 over 1990 for
the current Member States;

(cid:151) placing the Community in a credible position to insist on
an international agreement on a new goal for the period
subsequent to Kyoto, which should aim at cutting emissions
significantly.

The Programme aims at protecting and restoring the
4.
functioning of natural
systems and halting the loss of
bio-diversity both in the European Union and on a global
scale, with the following objectives:

(cid:151) protection of

the natural environment

from damaging

pollution emissions;

HAVE DECIDED AS FOLLOWS:

(cid:151) protection of soils against erosion and pollution;

Article 1

Establishment of the Programme

(cid:151) protection of biological diversity,
Community’s bio-diversity strategy (1);

in line with the

This decision establishes a programme of Community
1.
(cid:145)the
action on the environment, hereafter
programme(cid:146), which sets out priority objectives to be attained.

referred to as

(cid:151) protection of bio-diversity and landscape values across the

rural areas of the Community.

This programme shall cover

2.
1 January 2001 and ending on 31 December 2010.

the period starting on

(1) Communication of the European Commission to the Council and to
the Parliament on a European Community Biodiversity Strategy,
COM(98) 42 final.

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The Programme aims at an environment where the levels
5.
of man-made contaminants do not give rise to significant
impacts on, or unacceptable risks to, human health. The
Programme specifically aims at:

(cid:151) achieving better understanding of

the threats to human

health;

(cid:151) assessing all chemicals produced in relevant quantities in a
step by step approach with clear target dates and deadlines
(as outlined in the White Paper on the new chemicals
starting with the high production volume
strategy),
chemicals and chemicals of particular concern;

recycling the quantity of waste for final disposal should
be minimised and should be safely destroyed or disposed
of; waste should be treated as closely as possible to the
place of its generation, to the extent that this is compatible
with Community legislation and does not lead to a decrease
in the economic and technical efficiency in waste treatment
operations.

7.
The Programme shall promote the adoption of policies
and approaches that permit sustainable development in the
candidate countries.

Promoting environment and sustainable development in

8.
the Candidate countries through:

(cid:151) ensuring that the levels of pesticides in the environment do
not give rise to significant risks to or impacts on human
health and the environment and, more generally, to achieve
an overall reduction in the use of pesticides;

(cid:151) extended dialogue with the administrations in the Candidate

Countries on sustainable development;

(cid:151) achieving levels of water quality that do not give rise to
significant impacts on and risks to human health and the
environment, and to ensure that the rates of extraction
from water resources are sustainable over the long term;

(cid:151) cooperation with environmental NGOs and business in the

Candidate Countries to raise awareness.

(cid:151) achieving levels of air quality that do not give rise to
impacts on and risks to human health and

significant
environment;

The Programme shall stimulate the development of a
to
environment

9.
global partnership for
sustainable development by ensuring:

contribute

and

(cid:151) substantially reducing the number of people regularly

affected by long-term and significant levels of noise.

(cid:151) the integration of environmental and sustainable devel-
opment concerns and objectives into all aspects of
the
Community’s external relations;

6.
The Programme aims at better resource efficiency and
resource and waste management, with the following objectives:

(cid:151) that environmental issues are addressed and are properly

resourced by international organisations;

(cid:151) ensuring

the
and
that
resources and their associated impacts
non-renewable
does not exceed the carrying capacity of the environment;

consumption

renewable

of

(cid:151) a significant reduction in the quantity of waste going to
and the volumes of hazardous waste

final disposal
produced, in the lifetime of the programme;

(cid:151) achieving a significant overall reduction in the volumes of
waste generated through waste prevention initiatives, better
resource efficiency and a shift towards more sustainable
consumption patterns,
link
the
thereby
between generation of waste and economic growth;

de-coupling

(cid:151) for wastes

that

they should be
non-hazardous or present as little risk as possible; pref-
erence should be given to recovery and especially to

still generated:

are

(cid:151) the implementation of international conventions relating to

the environment;

(cid:151) the active search for consensus on the evaluation of risk to
including the sharing of
health and the environment,
information, collaboration on research and the devel-
opment of testing procedures with a view to facilitate inter-
national
approaches,
the precautionary principle
including the application of
where necessary.

consensus on risk management

The Programme shall ensure that

the Community’s
10.
environmental policy-making is undertaken in an integrated
way, based on an extensive and wide ranging dialogue with
stakeholders, citizen involvement, an analysis of cost-effec-
tiveness and sound scientific data and information,
taking
into account the latest research and technological development.

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Article 3

Strategic approaches to meeting environmental objectives

The objectives set out in Article 2 on strategic approaches shall
the following priority
be pursued inter alia by means of
actions.

1. Encouraging more effective implementation of Community
legislation on the environment and without prejudice to the
Commission’s right
to initiate infringement proceedings
requires:

(cid:151) support to the exchange of information on best practice

on implementation by the IMPEL network;

(cid:151) measures to combat environmental crime;

(cid:151) establishing a compliance assistance programme, with

specific help for small and medium enterprises;

(cid:151) stimulating the introduction of company environmental

performance reward schemes;

(cid:151) promoting an integrated policy approach that will
encourage the taking into account of environmental
requirements throughout the life-cycle of products, and
more widespread application of environmentally friendly
processes and products;

(cid:151) encouraging voluntary commitments and agreements to

achieve clear environmental objectives.

(cid:151) promotion of

improved standards of

inspection and

monitoring by Member States.

5. To help ensure that consumers are better informed about
the processes and products in terms of their environmental
impact:

2. Integration of environmental protection requirements into
the definition of all Community policies and activities.
This requires:

(cid:151) encouraging
to compare
consumers
between products of the same type;

the uptake of

eco-labels

allow
environmental performance

that

(cid:151) ensuring that the integration strategies produced by the
in different policy areas are translated into

Council
effective action;

(cid:151) encouraging the use of reliable self-declared environ-

mental claims and preventing misleading claims;

(cid:151) regular monitoring,

via
reporting on the process of sectoral integration;

relevant

indicators,

and

(cid:151) promoting

green

procurement, while

respecting
Community competition rules and the internal market,
with guidelines on best practice and starting with a
review of green procurement in Community institutions.

(cid:151) further

integration of
Community funding programmes.

environmental

criteria

into

6. To support environmental integration in the financial sector

requires:

3. To promote the polluter pays principle, through the use of
market-based instruments,
including the use of emissions
trading, environmental taxes, charges and subsidies, to inter-
nalise the negative as well as the positive impacts on the
environment.

4. To promote cooperation and partnership with enterprises
and their representative bodies on environment matters
requires:

(cid:151) encouraging wider

uptake

the Community’s
Eco-Management and Audit schemes (1) and developing
initiatives to encourage companies to publish rigorous
and independently verified environmental or sustainable
development performance reports;

of

(cid:151) considering a voluntary initiative with the financial
the incorporation of
annual
in company
reports, and the exchange of best policy

sector, covering guidelines
data on environmental
financial
practices between Member States;

for
cost

(cid:151) calling on the European Investment Bank to strengthen
and

the
of
considerations into its lending activities.

environmental

integration

objectives

7. To create a Community liability regime requires:

(1) Insert full reference when available.

(cid:151) legislation on environmental liability.

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8. To promote better understanding of environmental

issues

amongst European citizens requires:

(cid:151) encouraging renewable energy sources, with a view to
meeting a target of 12 % of energy from renewable
sources by 2010;

(cid:151) supporting the provision of accessible information to

citizens on the environment;

(cid:151) providing a tool-kit of resources aimed at helping local
and regional authorities or other organisations
to
issues
communicate with citizens on environmental
and notably on the benchmarking of household environ-
mental performance and information to improve it.

9. To encourage and promote effective land use planning and
management decisions taking account of environmental
concerns, while fully respecting the subsidiarity principle,
requires:

(cid:151) promoting best practice with respect to sustainable land
use planning, with particular emphasis on the Integrated
Coastal Zone Management Programme;

(cid:151) supporting programmes and networks

fostering the
exchange of experience and the development of good
practice on sustainable urban development and on
sustainable sea exploitation;

(cid:151) increasing resources and giving broader scope for agri-
environment measures under the Common Agricultural
Policy.

(cid:151) promoting the use of fiscal measures, including at the
Community level,
to encourage a switch to cleaner
energy and transport and to encourage technological
innovation, including the adoption of a framework for
energy taxation;

(cid:151) encouraging environmental agreement with industry

sectors on energy efficiency;

(cid:151) identifying specific actions to reduce greenhouse gas
emissions from aviation if no such action is agreed
within the International Civil Aviation Organisation by
2002;

(cid:151) ensuring

climate

theme of
Community policy for research and technological devel-
opment and for national research programmes;

a major

change

as

(cid:151) developing means to assist SMEs to adapt, innovate and

improve performance;

(cid:151) introducing incentives to increase Combined Heat and

Power;

(cid:151) promoting eco-efficiency practices and techniques in

industry;

Article 4

(cid:151) promoting energy saving on both the heating and

cooling of buildings.

Priority areas for action on tackling climate change

The objectives set out in Article 2 on climate change shall be
pursued inter alia by means of the following priority actions.

1. With a view to meeting the targets established by the Kyoto

Protocol:

(cid:151) ratifying and implementing the Kyoto Protocol;

(cid:151) establishing objectives to be achieved in a cost effective
way for reductions in greenhouse gas emissions in the
in conjunction with the European
various
Climate Change Programme;

sectors,

(cid:151) establishing a Community wide

emissions

trading

scheme in CO2;

(cid:151) undertaking an inventory and review of energy subsidies
in Member States. This will include consideration of the
compatibility with the achievement of climate change
objectives;

2. Prepare for measures aimed at adaptation to the conse-

quences of climate change, by:

(cid:151) reviewing Community policies,
related to cohesion policy,
addressed adequately in investment decisions;

so that

in particular

those
adaptation is

(cid:151) encouraging regional climate modelling and assessments
to prepare regional adaptation measures and to support
awareness raising among citizens and business.

Article 5

Priority areas for action on nature and bio-diversity

The objectives set out
restoration of natural
pursued by means of
requires:

in Article 2 on the protection and
systems and bio-diversity shall be
the following priority actions. This

1. On accidents and disasters:

(cid:151) encouraging a shift towards low carbon fuels for power

generation;

(cid:151) promoting Community coordination to actions by
Member States in response to accidents and natural
disasters;

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(cid:151) developing measures to help prevent the major accident
and
from pipelines

and mining,

hazards
arising
measures on mining waste.

2. A thematic strategy on soil protection.

3. Promoting the integration of
restoration into other policies.

landscape protection and

4. Encouraging further development of the positive elements
of the relationship between agriculture and the environment
in future reviews of the Common Agricultural Policy.

5. Promoting

greater

environmental
integration
considerations in the Common Fisheries Policy, taking the
opportunity of its review in 2002.

of

research and scientific
1. Reinforcement of Community
expertise, and encouragement
coordination of
to the
national research programmes, to support achievement of
objectives on health and environment, and in particular the:

(cid:151) identification and recommendations on the priority

areas for research and action;

(cid:151) definition and development of indicators of health and

environment;

(cid:151) examination of

the need to update current health
standards and limit values, including where the effects
on potentially vulnerable groups, such as children or the
elderly, are taken into account;

(cid:151) review of trends and the provision of an early warning

mechanism for new or emerging problems.

6. Developing strategies and measures on forests,

incor-

2. On chemicals:

porating the following elements:

(cid:151) the development of national and regional forestry and
sustainable forest management, under rural development
plans, in line with work being undertaken in the Inter-
Governmental Forum on Forests and the Pan-European
Ministerial Conference on the protection of forests;

(cid:151) the continuation of the existing Community measures
on the protection of
forests with increased emphasis
on the monitoring of the multiple functions of forests;

(cid:151) encouraging credible forest certification schemes;

(cid:151) the continuation of

the active participation of

the
Community in the implementation of the resolutions
the ministerial conferences on the Protection of
of
Forests in Europe and in the international discussion
and negotiations on forest-related issues.

(cid:151) developing a new single

testing,
evaluation and risk management of new and existing
substances;

system for

the

(cid:151) developing a testing regime depending on properties,
uses, exposure and volumes of chemicals produced or
imported;

(cid:151) establishing

new specific

risk
management procedures to which substances that give
rise to very high concern have to be submitted before
they are employed in particular uses;

accelerated

and

(cid:151) upgrading of

information from industries on the
properties of the chemicals they produce and use, to
cover potential risks to the environment and health;

(cid:151) upgrading

of
Community level and in Member States.

the management

of

chemicals

at

7. A thematic strategy for

the protection of

the marine

3. On pesticides:

environment.

8. Reinforcing controls on monitoring,

labelling and trace-

ability of GMOs.

9. Monitoring
bio-diversity
programme for gathering data and information.

implementation of

strategy

action

the Community’s
a
plans

through

and

the

Article 6

Priority areas for action on environment and health

(cid:151) a thematic strategy on the sustainable use of pesticides;

(cid:151) ratification of the Rotterdam Convention on the Prior
Informed Consent Procedure for Certain Hazardous
Chemicals and Pesticides in International Trade;

import

(cid:151) amending Community Regulation (EEC) No 2455/92 (1)
concerning the
and export of dangerous
chemicals with the aim of bringing it into line with
the Rotterdam convention,
improving its procedural
mechanisms and improving information to developing
countries;

The objectives set out in Article 2 on health and environment
shall be pursued by means of the following priority actions:

(1) Council Regulation (EEC) No 2455/92 of 23 July 1992 concerning
the export and import of certain dangerous chemicals (OJ L 251,
29.8.1992, p. 13).

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(cid:151) improving the management of chemicals and pesticides
including the

in developing and candidate countries,
elimination of stocks of obsolete pesticides.

(cid:151) removal of subsidies that encourage the over-use of

resources;

4. On the sustainable use and high quality of water:

(cid:151) integration of resource efficiency considerations into an

Integrated Product Policy approach.

(cid:151) phasing out of the discharge of hazardous substances to

water;

2. On waste prevention:

(cid:151) revising the Bathing Water Directive (1);

(cid:151) integrating waste prevention objectives and priorities

into an Integrated Product Policy approach.

(cid:151) ensuring the integration of the approach of the Water
Framework Directive and water quality objectives into
the Common Agricultural Policy and Regional Devel-
opment Policy.

3. Revising the legislation on sludges (2).

5. On air pollution:

(cid:151) improving the monitoring of air quality and the
including by

information to the public,

provision of
indicators;

(cid:151) a thematic strategy on air pollution to cover priorities
for further actions,
the review and updating of air
quality standards and national emission ceilings and
the development of better
for gathering
systems
information, modelling and forecasting;

(cid:151) considering indoor air quality and the impacts on
future measures

for

health, with recommendations
where appropriate.

Article 7

Priority areas for action on the sustainable use of natural
resources and management of wastes

The objectives set out in Article 2 on waste and resource
the following
management shall be pursued by means of
priority actions.

4. Recommendations on construction and demolition waste.

5. Legislating on bio-degradable wastes.

6. A thematic strategy on waste recycling, including measures
aimed at ensuring the collection and recycling of priority
waste streams.

Article 8

Priority areas for action on international issues

The objectives set out in Article 2 on international issues shall
be pursued by means of the following priority actions:

1. Integration of environment concerns and sustainable devel-

opment into all the Community’s external policies.

2. Establishing a coherent set of environment and development
targets for adoption at the World Summit on Sustainable
Development
in 2002, and work towards strengthening
international environmental governance.

1. A thematic strategy on the sustainable use of resources,

investment and export credits.

including:

3. Promoting sound environmental practices in foreign direct

(cid:151) consideration of a best practice programme for business;

(cid:151) identifying research needs;

(cid:151) economic instruments;

(1) Council Directive 76/160/EEC of 8 December 1975 concerning the
quality of bathing water (OJ L 31, 5.2.1976, p. 1), as amended by
Council Directive 90/656/EEC of 4 December 1990 (OJ L 353,
17.12.1990) and Council Directive 91/692/EEC of 23 December
1991 (OJ L 377, 31.12.1991).

4. Intensify efforts at

the international

to arrive at
consensus on methods
to
risks
health and the environment, as well as approaches of risk
management including where appropriate the precautionary
principle.

the evaluation of

level

for

5. Ensuring that sustainability impact assessments of

trade

agreements are carried out.

(2) Council Directive 86/278/EEC of 12 June 1986 on the protection of
the environment, and in particular of the soil, when sewage sludge
is used in agriculture (OJ L 181, 4.7.1986, p. 6).

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Article 9

Environment policy-making based on participation and
sound knowledge

The objectives set out in Article 2 on environment policy-
making based on participation and sound knowledge shall be
pursued by means of the following priority actions:

1. Mechanisms within which stakeholders, especially those
directly affected by proposals and other
initiatives, are
widely and extensively consulted at all stages so as to
facilitate the most effective choices and to ensure better a
satisfactory result
in regard to the
for the environment
measures to be proposed.

2. Continuing financial support

to environmental NGOs to

facilitate participation in the dialogue process.

3. Ensuring that environment remains a major priority for
Community research programmes. Ensuring better coor-
dination of research related to the environment conducted
in Member States.

4. Ensuring regular

information to the public on the
environment and related issues by the production of
annual headline environmental indicator reports and inte-
gration indicators, which show the value of environmental
damage where possible.

5. Reviewing information and reporting systems with a view
to the introduction of a more coherent and effective system
to ensure reporting of high quality, comparable environ-
mental data and information.

6. Reinforcing the development of geographical

information
systems and the use of space monitoring applications in
support of policy-making and implementation.

Article 10

Monitoring and evaluation of results

The Commission shall evaluate the progress made in
1.
implementing the programme in the fourth year of operation.
The Commission shall submit this mid-term report together
with any proposal for amendment that it may consider appro-
priate to the European Parliament and the Council.

2.
The Commission shall submit to the European Parliament
and the Council a final assessment of the programme and the
state and prospects for the environment in the course of the
final year of the programme.

Article 11

This Decision shall be published in the Official Journal of the
European Communities.