Communication from the Commission to the Council, the European Parliament and the Economic and Social Committee — Community strategy for dioxins, furans and polychlorinated biphenyls
Date: 2001-11-17
Institutions: European Commission
Subjects: dangerous substance, public health, toxic substance

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COMMUNICATION FROM THE COMMISSION TO THE COUNCIL, THE EUROPEAN
PARLIAMENT AND THE ECONOMIC AND SOCIAL COMMITTEE

Community strategy for dioxins, furans and polychlorinated biphenyls

(2001/C 322/02)

(COM(2001) 593 final)

1. INTRODUCTION AND SCOPE

environment

immunotoxicity,

Dioxins,
furans and PCBs (polychlorinated biphenyls) are a
group of
toxic and persistent chemicals whose effects on
human health and on the
include dermal
reproductive effects and teratoge-
toxicity,
nicity, endocrine disrupting effects and carcinogenicity. An
increase in the presence in the environment of these substances
coupled with several accidents
(Yusho (Japan), Yu-cheng
(Taiwan), Seveso (Italy), Belgium) have triggered a deep
concern
their
reduction and control. Moreover, there is considerable public,
scientific and regulatory concern over the negative effects on
human health and on the environment of long-term exposure
to even the smallest amounts of dioxins and PCBs.

international

community

from the

for

Over the past two decades the Commission has proposed wide-
ranging legislation aimed at directly or indirectly reducing the
release of these compounds into the environment, with the
objective of reducing human exposure and protecting human
health and the environment. Recent exposure data show that
measures introduced to control dioxin releases have resulted in
a substantial reduction in intake of these compounds: levels in
humans are decreasing since the mid eighties. Since 1995 this
tendency is levelling out, even slightly rising levels have been
observed.

There is a pressing need for further action to avoid environ-
mental and adverse health effects from dioxins and PCBs,
because:

(cid:151) bioaccumulation is continuing along the trophic chain
and releases go on from landfills, polluted soils or
sediments. The sharp decrease of
in
the environment in the last 20 years will probably not be
repeated in the coming decades,

(cid:145)background levels(cid:146)

(cid:151) the toxic properties seem to have been underestimated
and new epidemiological,
toxicological and mechanistic
data have emerged in particular with respect to neurode-
velopmental, reproductive and endocrine effects, which
indicate that dioxins and some PCBs have a broader impact
on health than previously assumed, even in very low doses
and in particular on the most vulnerable groups like
breast-fed infants
foetus, which is directly
exposed to the accumulated maternal body burdens,

and the

the EU adopted on 30 May 2001 an
Food (SCF) of
opinion on the risk assessment of dioxins and dioxin-like
PCBs in food. The Committee established a group TWI for
dioxins and dioxin-like PCBs of 14 pg toxic equivalent
(WHO-TEQ)/kg bodyweight. This TWI is in line with the
tolerable monthly intake of 70 pg/kg body-
provisional
weight/month established by the Joint FAO/WHO Expert
Committee on Food Additives (JECFA) at its 57th meeting
(Rome, 5-14 June 2001) and concurs with the lower end of
the range TDI of 1-4 pg WHO-TEQ/kg body weight, estab-
lished by the World Health Organisation (WHO) Consul-
tation in 1998. Representative recent dietary intake data
indicate that the average dietary intakes of dioxins and
dioxin-like PCBs in the EU is in the range of 1,2-3 pg/kg
bodyweight and day which means that a considerable part
of the European population would still exceed the TWI or
TDI,

(cid:151) the European Community has acquired new obli-
gations by becoming a contracting party to several
conventions in the field of dioxin and PCB (see point
4.2),

Indeed,

(cid:151) the enlargement of the European Union to include
accession countries is likely to increase the average
the accession countries are
exposure in EU.
the
likely to produce higher emissions than the EU at
present time through variation in legislation and due to
the vast abundance of worn industrial plants. They are
probably high contributors to the total dioxin emissions
into the European environment. This puts an emphasis
on the need to ensure compliance with the relevant
environmental acquis in the accession countries.

In view of the general concern and the new elements that have
been described,
it has been deemed necessary to develop a
Community strategy for dioxins and PCBs. The Commission
has therefore adopted this strategy in order to secure better
protection of human health and of the environment from the
effects of dioxins and PCBs.

The scope of this strategy will cover the polychlorinated diben-
zodioxins (PCDDs) commonly known as dioxins, polychlor-
inated dibenzofurans (PCDFs) commonly known as furans
and polychlorinated biphenyls (PCBs). As a way of simplifi-
the word dioxin will
cation,
comprise dioxins and furans. Among the PCBs,
in term of
toxicity, special attention will be given to a small group of
so called (cid:145)dioxin-like PCBs(cid:146) (1) which exhibit dioxin-like toxicity.

the document,

throughout

(cid:151) the dietary exposure to dioxins and dioxin-like PCBs
exceeds the tolerable weekly intake (TWI) or the
tolerable daily intake (TDI) for a considerable part of
the European population: the Scientific Committee on

(1) Namely those with no chlorine in the ortho positions (= coplanar
PCB) or those with only one chlorine in one of the four ortho
positions (= mono-ortho chlorinated PCB).

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2. OBJECTIVES OF THE STRATEGY

The objectives of the strategy are:

(cid:151) to assess the current state of

the environment and the

ecosystem,

(cid:151) to reduce human exposure to dioxins and PCBs in the short
term and to maintain human exposure at safe levels in the
medium to long term,

(cid:151) to reduce environmental effects from dioxins and PCBs.

The quantitative objective is:

the main sources of releases are:

sediments and in the whole aquatic

persistent and bioaccumulable in fat of biota, is now spread in
soils,
environment
((cid:145)historical pollution(cid:146)). There are two types of uses of PCBs:
1. Closed uses: dielectric fluids in electrical equipment. From
fires,
these uses,
accidents,
illegal dumping and inadequate disposal. 2. Open
uses: as pesticide extenders, flame retardants, sealants, paints,
etc. From these uses the main sources of releases are:
land-
filling, migration, air emissions from evaporation. Other less
sewage sludge
significant
application to land, combustion of waste oils, as well as PCB
reservoirs, such as marine and river sediments and harbour
sludges.

sources are waste incineration,

leakage,

The fact that dioxins are more toxic than PCBs, but that the
quantities of PCBs released to the environment are several
times higher has to be taken into account.

(cid:151) to reduce human intake levels below 14 picograms

3.2. Human health effects

WHO-TEQ per kg bodyweight per week.

3. THE PROBLEM OF DIOXINS AND PCBs

3.1. Chemical properties, sources and pathways

furans and PCBs are three of the 12 UNEP inter-
Dioxins,
nationally recognised persistent organic pollutants
(POPs).
POPs are organic compounds of mainly anthropogenic origin
which are characterised by their lipophilicity, semi-volatility
and resistance to degradation. These characteristics predispose
these substances to long environmental persistence and to
long-range transport. They are also known for their ability to
biomagnify and bioconcentrate under typical environmental
conditions,
toxicologically
relevant concentrations. Due to their toxic characteristics they
pose a threat
is
that dioxins and PCBs have similar
important
chemical properties and hazardous characteristics but
the
sources of
an effective
approach to controlling and reducing their release into the
environment should address both of
taking into
account the differences:

to humans and to the environment.

are different. Therefore

to highlight

potentially

them, but

achieving

releases

thereby

It

and sediments

Dioxins are formed essentially as unintentional by-products
in a number of chemical processes as well as in almost every
combustion process. Soils
important
reservoir sources given the persistence of these pollutants in
the environment. The most
route for human
exposure to dioxins
food consumption, contributing for
more than 90 % of total exposure, of which products of fish
and other animal origin account for approximately 80 % of the
overall exposure.

important

are

is

PCBs, and that is the main difference with dioxins, are inten-
tionally produced chemicals,
that were manufactured for
decades before the ban in marketing and use was adopted in
1985 due to their reproductive toxicity and bio-accumulative
these products, which are very
effects. The main part of

A number of types of cancer, as well as total cancer incidence,
have been related to accidental and occupational exposure to
dioxins (mostly TCDD (1). In addition, an increased prevalence
of diabetes and increased mortality due to diabetes and cardiov-
ascular diseases have been reported.
In children exposed to
dioxins and/or PCBs in utero, effects on neurodevelopment,
neurobehaviour and effects on thyroid hormone status have
been observed at exposures at or near background levels. At
higher exposures, due to accidental and occupational exposure,
children exposed transplacentally to PCBs and dioxins show
skin defects (such as chloracne), tooth mineralisation defects,
developmental delays, behaviour disorders, decrease in penile
length at puberty, reduced height among girls at puberty and
hearing loss. A shift in sex ratio towards females has been
the Seveso site when fathers were exposed to
observed at
TCDD. Humans, sea birds and aquatic mammals are priority
targets and victims, as they are at the end of
the aquatic
trophic chain of
these products which bioaccumulate in
animal fat. Although dioxin is known as a human carcinogen,
cancer is not considered to be the critical effect for the deri-
vation of the tolerable intake. The critical effects are neurobe-
havioral changes, endometriosis and immunosuppression. PCBs
are classified as probable human carcinogens and produce a
wide spectrum of adverse effects in animals, including repro-
ductive toxicity, immunotoxicity and carcinogenicity.

3.3. Ecotoxicology

A wide range of toxicological effects has been observed in
wildlife exposed to dioxins in their environment. They range
from chronic to acute and include reduction in reproductive
immunotoxicity and carcinogenicity.
success, growth defects,
it has not often been
However, outside the laboratory,
possible
relationship
cause/effect
a clear
to demonstrate
between the observed effects and the exposure to dioxins.
Early life stages (eggs, embryos, larval stages) of most species
studied tend to be most sensitive to dioxin toxicity, because the
chemicals act on a number of systems important to growth and
development, such as Vitamin A and sex hormone metabolism.

(1) 2,3,7,8-tetrachlorodibenzo-p-dioxin.

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4. PROGRESS IN ADDRESSING THE PROBLEM

4.1. Achievements

by

the

2001),

improvement

industrialised Member States. This

According to the (cid:145)European dioxin emission inventory, Stage II(cid:146)
(LUA-NRW (1),
Commission,
launched
considerable improvement of the general situation concerning
emissions to air during the last decade has occurred which is
due to comprehensive abatement measures carried out in the
is
most
reflected by decreasing dioxin concentrations in ambient air
and declining depositions. Furthermore, the above-mentioned
report assessed the emission trend 1985-2005 and foresees that
for those industrial processes which are considered as the most
relevant emission sources a 90 % reduction of dioxin emissions
to air will be nearly realised in 2005. This is to a large part due
to the successes regarding particular emission sources which
already by 1985/1990 were targets of active dioxin-abatement
policy. In 1985 dioxin emissions from industrial sources repre-
sented 77 % of
(industrial + non-industrial) dioxin
emissions.

the total

In order to get a clearer insight and to be able to address the
problem in an efficient way the Commission has financed
several studies (Annex II) and has proposed a number of
Directives (Annex I) which reduce the releases of dioxins
thereby reducing human
and PCBs
exposure to these compounds:

into the environment

(i.e., simultaneously
ELVs. The Directive is an (cid:145)integrated(cid:146)
addressing all environmental media (cid:151) air, water, soil)
approach to industrial emission control, such as dioxin
installations covered by Annex I of
emissions. All
the
including installations with dioxin emission
Directive,
potentials are required to obtain a permit from the auth-
orities in the EU countries. The permits must be based on
the concept of best available techniques (BAT) and must
include ELVs for certain pollutants such as dioxins. The
Directive provides for the set-up of a European pollutant
emission register, which is a monitoring and harmonisation
mechanism designed to collate and publish every three
years an inventory of the principal
industrial emissions,
including dioxin emissions to the air and their sources.
Existing installations have to comply by October 2007.

(cid:151) The Seveso Directives on the control of major accident

hazards

The Seveso Directives are of critical significance for the
protection of communities in the surroundings of relevant
installations, and seek to avoid serious accidents such as the
Seveso catastrophe in 1976. Council Directive 96/82/EC,
replacing Directive 82/501/EEC, aims at the prevention of
major accident hazards involving dangerous substances
such as dioxins and secondly, as accidents still continue
to occur, it aims at the limitation of the consequences of
such accidents.

(cid:151) Waste incineration

(cid:151) Releases to water

In 1989, for the first time the EU adopted legislation to
reduce dioxin emissions from municipal waste incineration
leading to a
by setting up so-called operational conditions,
significant reduction of dioxin emissions.
In response to
the target set by the 5th EAP the Directive 94/67/EC on
the incineration of hazardous waste has been added: for the
first time an emission limit value (ELV) was set at Community
level. In view of the importance of waste incineration as a
source of dioxin emissions, the Commission has proposed a
new Directive on incineration of waste which will become
applicable to existing plants in summer 2005. This new
directive which sets an ELV for all waste incinerators aims
far as possible negative effects on the
to reduce as
environment caused by the incineration and co-incineration
of waste and also targets the incineration of non-hazardous
waste, which was once the largest source of emissions of
dioxins into the atmosphere. The dominant source of
dioxins in the EU has traditionally been uncontrolled waste
incineration. The Directives on waste incineration ensure that
this will no longer be the case.

(cid:151) Integrated pollution prevention and control (IPPC)

Other relevant industrial sectors that generate dioxins are
covered by the IPPC Directive and the BREFs (2) address
dioxins explicitly, giving clear indications on achievable

(1) Landesumweltamt Nordrhein-Westfalen.
(2) Best available techniques reference documents.

Council Directive 76/464/EEC establishes the framework for
laying down emission limit values and environmental
for certain categories of
quality standards at EU level
and PCBs. The Water
including dioxins
substances,
the
Framework Directive
European
integrated the provisions
Parliament and of the Council
under Directive 76/464/EEC and provides
the
progressive reduction or cessation of discharges, emissions
and losses of pollutants to water.

2000/60/EC of

for

(cid:151) Restrictions on marketing and use of chemicals

In 1985, the use of PCBs and PCTs was banned through
Council Directive 85/467/EEC relating to restrictions on the
marketing and use of certain dangerous substances and
preparations.

(cid:151) Shipment and disposal of PCB-containing waste

Although PCBs and dioxins are identified as a hazardous
waste in Council Directive 91/689/EEC the Commission has
legislation on the
recognised the need for additional
disposal of PCB-containing waste, and has
introduced
such legislation: Council Directive 75/439/EEC on the
disposal of waste oils set a maximum limit of 50 ppm
for the PCB content of regenerated oil or oil used as fuel.
Council Regulation (EEC) No 259/93 sets strict control
procedures for the shipment of PCB-containing waste, to
avoid their illegal dumping. A specific Directive (96/59/EC)

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the disposal of PCBs and PCTs aims at disposing
for
completely of PCBs and equipment containing PCBs as
soon as possible, and for big equipment before the end
of 2010. This Directive sets the requirements for an envi-
ronmentally sound disposal of PCBs. Member States have to
make an inventory of big equipment containing PCBs, have
to adopt a plan for disposal of inventoried equipment, and
outlines for collection and disposal of non-inventoried
equipment (small electrical equipment very often present
in household appliances manufactured before the ban on
production of PCBs). The proposal for a Directive on waste
from electric and electronic equipment, which is now being
discussed by the Council and the European Parliament, will
certainly have a strong impact on the separate collection
and environmentally sound disposal of electrical equipment
containing PCBs, as it contains an explicit obligation of
segregation of the hazardous components of electric and
electronic equipment before any subsequent treatment is
applied. The Directive on landfill of waste (99/31/EC) has
resulted in a significant change in the volume and nature of
waste accepted at Europe’s landfill sites. It has also led to
improvements in design and operating standards, as well as
in the aftercare of new and existing landfills. Therefore it
should achieve a significant decrease in the releases of PCBs
in landfills.

(cid:151) Animal nutrition

As a consequence of two contamination incidents in the
animal feed sector (citrus pulp pellets from Brazil with high
dioxin contamination in 1998 and highly contaminated
kaolinitic clay from certain mines in 1999) maximum
limits have been established for dioxins in citrus pulp
pellets and kaolinitic clay.

4.2.

International approach

The international community has called for urgent global action
to reduce and eliminate the release of dioxins and PCBs.
Therefore the Commission actively participates in a number
of relevant
international activities, of which the following are
particularly worth mentioning:

(cid:151) a new exchange of

letters between the Commission and the
WHO has been finalised beginning of 2000 to strengthen
and intensify the framework of cooperation. During the
EC/WHO seminar on cooperation on environment and
health issues (Brussels, September 2000) WHO and the
EC discussed possible future cooperation in the field of
dioxins and PCBs and decisions were reached on concrete
actions.

The European Community is also a contracting party to
several conventions with regard to dioxins and PCBs:

the trans-
(cid:151) The Basel Convention is designed to control
boundary movements of hazardous waste
and their
disposal. PCBs and dioxins are classified as hazardous
wastes.

(cid:151) The OSPAR Convention for

the marine
the protection of
the north-east Atlantic agreed in 1998 on
environment of
the objective to cease emission, discharges and losses of
hazardous substances by 2020 in order to achieve (cid:145)close
to zero(cid:146) concentrations of compounds such as dioxins/PCBs
in the marine environment.

(cid:151) The Convention on the protection of the marine environment of
the contracting parties declare to
the Baltic Sea Area:
prohibit, totally or partially, the use of PCBs in the Baltic
Sea and its catchment areas.

(cid:151) The UNECE POPs Protocol to the Convention on long-range
transboundary air pollution, signed by the EU in Aarhus in
June 1998, aims to control and reduce the emissions of a
number of POPs which require the most urgent action,
such as dioxins and PCBs.

(cid:151) The Stockholm Convention (POPs Convention), signed by the
EU in May 2001 in Stockholm, aims to reduce the total
release of dioxins, furans and PCBs, with the goal of their
continuing minimisation and, where feasible, ultimate elim-
ination.

(cid:151) the 1990 declaration adopted by the North Sea Conference
inter alia, 70 % reductions of chlorinated

undertaking,
dioxins,

4.3. Gaps

(cid:151) the revised Protocol of

the Barcelona Convention for the
protection of
the Mediterranean from
land-based sources, where dioxins are included in the list
of substances to be controlled,

the waters of

(cid:151) the Joint UNECE/WHO-ECEH (1) Task Force on health aspects
long-range transboundary air pollution organised meetings
of
in order to initiate the preparation of the assessment on
health risks of POPs from LRTAP,

(1) United Nations Economic Commission for Europe/World Health

Organisation-European Centre for Environment and Health.

Although a lot of progress has been achieved in reducing the
releases of dioxins/PCBs in the environment, the following facts
have been stated:

(cid:151) the target set in the 5th EAP will not be achieved: for the
industrial sources a considerable emission reduction has been
attained (based on current trends and activities it is foreseen
that the target set in the 5th EAP of a 90 % reduction will
be nearly realised in 2005 compared to the levels in 1985)
(domestic solid fuel
BUT,
burning, domestic waste burning,
fires, etc.) the rate of
emission reduction is much lower. The relation between
industrial and non-industrial sources is shifting towards
growing importance of non-industrial sources,

the non-industrial

sources

for

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(cid:151) one million tons of PCBs have been produced and used
during the 20th century until
their ban in 1985. The
main part of these products, which are highly resistant to
degradation (> 30 years) and bioaccumulable in fat of biota,
is now spread in soils, sediments and the whole aquatic
ecosystem ((cid:145)historical pollution(cid:146)),

(cid:151) much equipment and material containing PCBs will be
if they have not done so
their waste stage, and a correct disposal has to be

reaching in the coming years,
yet,
ensured to avoid additional releases in the environment.

and in combination with the new elements
Therefore,
described in the introduction,
there is a need to further
address the problem in order to protect human health. To
reduce human intake it is important to reduce the levels in
the most
the
important route for human exposure (90 % of total exposure).
The most efficient way to reduce the levels in the food chain is
to reduce the contamination in the environment. This should be
done by:

food consumption is

food chain because

1. avoiding (cid:145)new releases(cid:146) in the environment;

2. addressing (cid:145)historical pollution(cid:146).

In order to realise this the remaining gaps have been identified
on the basis of which an action plan has to be developed.
These gaps can be classified in gaps in knowledge, gaps in
legislation and gaps in implementation of Community legis-
lation.

(cid:151) Gaps in knowledge

Sources and inventories: regarding the emission sources
data gaps still exist causing considerable uncertainties of
the emission estimates. The inventory of releases to land
and water
research and data
collection is needed to verify the scale of releases from
the source sectors which have a high potential for release.

is not complete:

further

Emissions in the accession countries: important dioxin and
PCB sources should be identified in the accession countries,
which may be high contributors to the total dioxin and PCB
emissions into the European environment.

Monitoring programmes should be developed in order to
control compliance with existing legislation and to monitor
the effects of this strategy, the state of the environment and
the trends. These programmes will be essential in order to
further identify measures.

necessary
Measurement methods
and
condition for effective control and monitoring mechanisms
is the availability of appropriate measurement methods and
the comparability of data. At present, methods for analyses
of dioxins and dioxin-like PCBs are expensive and slow.

standards:

a

Therefore low-cost and fast methods have to be developed
allowing to analyse in routinely manner a great number of
samples and provide quick, cheap, and reliable results on
the presence of those compounds in the environment, feed
and food. In order to obtain comparable, consistent, reliable
and high quality measurement results it is necessary to
implement
standard at
a high quality measurement
Community level.

Dioxin-like PCBs: measurement programmes performed in
the past focused mostly on dioxins. Yet a variety of other
compounds probably having similar adverse health effects
have been identified, the so-called dioxin-like PCBs. The
the current
insufficient
available database is
situation with respect to dioxin-like PCBs. Therefore the
collect
Commission
launched
information on concentrations of dioxin-like PCBs
in
food, feed and in environmental samples across Europe.

to assess

recently

study

to

a

Risk assessment: the European Scientific Committee on
Animal Nutrition (SCAN) adopted an opinion on (cid:145)dioxins
in feed(cid:146) on 6 November 2000 and the Scientific Committee
on Food (SCF) adopted an opinion on (cid:145)risk assessment of
dioxins and dioxin-like PCBs in food(cid:146) on 22 November
2000. The SCF updated its opinion on 30 May 2001
based on new scientific information available since the
the SCF opinion of 22 November 2000.
adoption of
However, for the non dioxin-like ((cid:145)classical(cid:146) or (cid:145)non-coplanar(cid:146))
PCBs which have another
toxicological profile, which
circulate more easily through muscles and blood and
affect directly the nervous system and brain development
(namely for foetus and young children) and which could be
several orders of magnitude more concentrated than dioxins
in aquatic biota such as fish and shellfish a risk assessment
should be carried out.

concern,

to raise

Public information is needed to inform the public, to allay
public
risks
associated with exposure to these compounds and about
the role they have to play to prevent further contamination
of the environment. It is also important to allow (cid:145)self identi-
fication(cid:146) of at-risk groups.

awareness

about

the

fate and
Further research is needed on environmental
transport,
agrofood
ecotoxicology and human health,
industry, source inventories, analytical aspects, decontami-
nation measures and monitoring. The most important gaps
in knowledge concern: 1. transfer and degradation processes (a
better understanding and quantification of the fundamental
transfer processes by which dioxins and PCBs move
between the different environmental media and of
the
degradation processes occurring within these media is
needed); 2. bio-accumulation and bio-magnification processes;
3. domestic incineration of wood (there is an information
deficit concerning the amount and the composition of
wooden fuels used for
room heating and cooking
purposes); 4. reservoir sources (the contribution to human
exposure,
the behaviour and degradation processes and
decontamination methods require examination); 5. open
for
uses of PCBs; 6.
dioxins and PCBs from soil and feed to animal
tissues
and products (milk, eggs).

rates and transfer

carry-over

factors

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(cid:151) Gaps in legislation

Legislation in order to limit and control the presence of
dioxins and PCBs in feed and food

In 1998, citrus pulp pellets (CPP) from Brazil with high
dioxin contamination were found. Comprehensive investi-
gations revealed that the use of highly contaminated lime
(calcium hydroxide) used for the production of citrus pulp
pellets was the source of the dioxin contamination of this
CPP. It turned out that the highly contaminated lime used
was a by-product from a chemical production process.

in Belgium the contamination of

In 1999,
fat used for
production of feedingstuffs caused a severe contamination
of different animal products. Investigations found that the
discharge of a technical PCB mixture at fat collection sites
used for feedingstuffs production had caused this dioxin
In the same year, grass meal with high
contamination.
the
dioxin contamination was found in Germany. Here,
dioxin contamination came from the drying process:
in
an open system, all kinds of wood were burnt, including
waste wood with chemical contamination from former
paintings or use of preserved wood.

Also in 1999, kaolinitic clay, used as (cid:145)anti-caking agent(cid:146) in
feedingstuffs and as carrier for production of mineral feed
was found to be highly contaminated if it originated from
certain mines. Gradually it became obvious that a natural
source was discovered. Possibly, geothermal processes
formed this unique pattern of dioxins over time from
organic material and chlorine.

PCBs and PCTs) of big equipment. However, Member States
are experiencing problems for establishing the mandatory
inventories of PCB-containing equipment and to prevent
the illegal dumping and inadequate disposal of PCBs.

5. BASIS FOR COMMUNITY ACTION

(cid:151) The Treaty

establishing

the European Community
provides in Article 152 that a high level of human health
protection shall be ensured in the definition and implemen-
tation of all Community policies and activities and in
Article 174 that Community policy on the environment is
to contribute to preserving, protecting and improving the
quality of the environment and to protecting human health.

(cid:151) The Feira European Council held on 19 and 20 June 2000
reaffirmed the need to ensure a high level of protection of
human health in the definition and implementation of all
Union policies. Food safety policy must apply to the entire
animal and human food chain and food legislation meeting
the most stringent public health criteria should be in place
as soon as possible. The European Council asked the
Commission to propose harmonised maximum levels for
contaminants, in particular for dioxins.

(cid:151) The European Parliament in its plenary session on 4
October 2000 discussed a proposal for a Directive of the
European Parliament and of the Council on undesirable
in animal nutrition. On this
substances and products
occasion,
called upon the
Commission to set maximum limits for dioxins and PCBs
in all feedingstuffs without delay.

the European Parliament

the

chloride

itself but

feed additive.

In June 2000, dioxin levels were
found in certain
pre-mixtures containing choline chloride, which is used as
an animal
Investigations tracing back the
source of contamination revealed that it was not the pure
carrier which was
choline
contaminated. Although the carrier was declared as corn
cob meal, analysis demonstrated that
it was not only
composed of corn but also of rice husks and/or saw dust
presumably treated with a wood preservative. The congener
pattern found in the contaminated lots was consistent with
the pattern typical of a pentachlorophenol contamination,
which is used as wood preservatives. During the year 2000,
the trace elements zinc oxide and copper oxide from
certain origins have been found to be contaminated with
dioxins at increased levels. These incidents clearly indicate
the need to establish legislation in order to limit and
control the presence of dioxins and PCBs in feed and food.

(cid:151) Gaps in implementation of the Community legislation

The PCB Directive has not been adequately implemented
and several infringement cases have been launched against
the obligations
Member States for failure to implement
under
is
currently a deadline of 2010 for destruction and disposal
(pursuant to Council Directive 96/59/EC on the disposal of

case of PCBs

this Directive.

In the

there

(cid:151) The European Parliament

(DG Research: Scientific and
Technological Options Assessment)
financed the study
(cid:145)Dioxins and PCBs: environmental and health effects(cid:146)
(Bipro-Irce, July 2000) aimed at developing political and
technical options
systematic
approach to secure better protection of human health
and of the environment from the effects of dioxins and
PCBs. The study aimed to effectively contribute to the
European discussion and to support a European dioxin
and PCB strategy.

an integrated

and

for

(cid:151) The European Parliament (Committee on the Environment,
Public Health and Consumer Policy) prepared a report on
the implementation of Directive 96/59/EC on the disposal
of PCBs, and adopted a Resolution in January 2001. The
Parliament
immediate priority
should be to implement the existing legislation and called
on Member States to make additional efforts to fulfil their
obligations. Finally, the Parliament considered that the PCB
Directive should be a test case for a better development of
more effective policies on other highly toxic substances.

recommended that

the

(cid:151) The precautionary principle: precaution underlies

the
concern of the Commission and is embedded within this
strategy.

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presented

sustainability(cid:146),

(cid:151) In the fifth environment action programme entitled
(cid:145)Towards
European
Commission to the Council, and approved by the Council
in 1993 the need to reduce emissions of dioxins
is
specifically mentioned in relation to air pollution and the
treatment of waste. In particular, a target is set for a 90 %
reduction of dioxin emissions to air from identified sources
by the year 2005 compared to 1985 levels.

the

by

(cid:151) In the sixth environment action programme entitled
(cid:145)Environment 2010: our future, our choice(cid:146)
the overall
Environment-Health objective is to achieve a quality of
of man-made
the
contaminants do not give rise to significant impacts on
or risks to human health.

environment where

levels

the

(cid:151) In the White Paper on food safety,

the Commission
identified the obvious need to define
for
standards
contaminants throughout the chain from feed to food. In
the action plan on food safety annexed to the White Paper
on food safety, the setting of maximum levels for several
contaminants including dioxins and PCBs for foodstuffs was
one of the measures to be implemented with a view to
achieving the highest possible level of health protection.
to be
Unavoidably,
proposed at
the need for
source directed measures reducing the contamination of
the environment has been identified.

complementary to the measures
the level of

food and feed,

6. STRATEGY

To secure better protection of human health and of
the
environment from the effects of dioxins and PCBs an integrated
and systematic approach is needed. Therefore the Commission
proposes a strategy:

1. to reduce the presence of dioxins and PCBs

in the

environment;

2. to reduce the presence of dioxins and PCBs in feed and

food.

This strategy aims to fill the identified gaps, to improve the link
between data collection and a consistent Community response
system, to adjust the existing sectoral
legislation in order to
achieve the Environment health objectives of the 6th EAP and
to develop incentive measures promoting
exchange of
information and experience between Member States.

Full enforcement of existing Community legislation by the
Member States is a prerequisite to achieve the objectives
the
pursued by this strategy. Furthermore the success of
strategy will critically depend on the action taken at
local
and regional level by communities and Member States.

6.1. Strategy to reduce the presence of dioxins and PCBs

in the environment

All assessments have stressed the urgent need to reduce the
sources of environmental contamination with these compounds
to the lowest possible as the most appropriate way to reduce
human exposure. Therefore, a set of actions has to be identified
for the short- to medium-term and for the long-term.

SHORT- TO MEDIUM-TERM ACTIONS (5 years)

relates

set of actions

This
risk
assessment, risk management, research, communication to the
public and cooperation with third countries and international
organisations.

to hazard identification,

A. Hazard identification

Further identification of dioxin and PCB sources

dioxin

A complete inventory of sources and more knowledge on
(cid:145)The
the share of the different dioxin sources is essential.
European
II(cid:146),
Stage
emission
(LUA-NRW,2001), launched by the Commission, identified
the need for further investigation or actions on specific
sources. The Commission will therefore take the following
actions:

inventory,

Hospital waste incinerators: a comprehensive inventory on
these facilities, including their main operation data will be
generated in the short-term and those countries still relying
on the on-site incineration of hospital waste will be
encouraged to change
emissive waste
management
systems and treatment methodologies as
soon as possible. This will be supported through the new
Directive 2000/76/EC of the European Parliament and of
the Council on the incineration of waste as new hospital
waste incinerators will have to comply with the obligations
of the Directive in December 2002 and all the existing
incinerators by December 2005.

to other,

less

the most
relevant
Iron ore
sintering might become
industrial sector. The importance of
this source will be
further enhanced by the facilities located in accession
countries. Emission measurements at the plants still not
tested will be carried out. Since dioxin emissions from
sintering plants may be reduced considerably by primary
measures
the Commission will help to spread this
knowledge to the respective contacts in the iron and steel
industry. The BREF (1) on the production of iron and steel
(cid:151) established under the IPPC (2) Directive (96/61/EC) (cid:151)
describes such primary measures and is already available
on the internet (http://eippcb.jrc.es). The Commission will
further promote the use and implementation of BAT in this
sector.

(1) Best available techniques reference document.
(2) Integrated pollution prevention and control.

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suitable abatement

Electric arc furnaces might be the only industrial source
with constant or increasing emissions to air. However,
through application of
technologies
which have already been developed this trend could be
stopped in the future. The same BREF as mentioned in
the paragraph above provides also information about
dioxins from electric arc furnaces. The Commission will
further promote the use of BAT in this sector in the
framework of the exchange of information coordinated by
the European IPPC Bureau.

Non-ferrous metal industry: the facilities for zinc recovery
from electric arc furnace (EAF) filter dusts have proven to
be major dioxin emission sources. All
facilities for zinc
recovery from EAF dusts and similar materials and dioxin
emissions from these installations will be determined. The
BREF of the non-ferrous metal sector mentions the tech-
niques for reduction of dioxin emissions in this sector,
which the Commission will further promote.

together

industrial
each facility but

Miscellaneous industrial sources: there is a vast number of
installations with small dioxin
miscellaneous
releases per
contributing
considerably to the annual dioxin emissions in Europe,
for non-ferrous metals
secondary
such as
(aluminium, copper),
(cupola furnaces),
cement production. The Commission will encourage the
licensing authorities to evaluate possible dioxin emissions
installations in a case-by-case
from these (cid:145)low emissive(cid:146)
consideration
information
the
available on BAT for those sectors.

smelters
iron foundries

account

taking

into

For the categories of installations with the highest dioxin
emission potential the IPPC Directive envisages the adoption
of emission limit values for dioxins when the need for
Community action has been identified on the basis,
in
particular, of the exchange of information provided for in
Article 16.

Non-industrial emission sources: concerning the domestic
solid fuel combustion the Commission intends to set up an
emission inventory for all EU and accession countries and
to carry out further research and an accurate quantification
on domestic wood and coal combustion. In the framework
of
the Risk Communication strategy (see point 6(1)(E))
better information will be provided to the public on the
environmental effects and the abuse of
inappropriate
materials as fuels for heating purposes and on the risks
((cid:145)backyard burning(cid:146)). More
of
research on the natural sources of dioxins (clay, mines, etc.)
and their share in the overall release into the environment
will be promoted. Recently concern was raised on the
emission of dioxins, among a range of other substances,
from the burning of animal carcasses on pyres as a result of
the foot and mouth disease. The Commission will consider
whether this choice of disease control strategy is sustainable
in view of the practical difficulties it presents in containing
its environmental impact in a timeframe that is consistent

domestic waste

burning

with rapid and effective disease control. The aim will be to
ensure that unacceptable emission of hazardous substances
into the environment and consequently in feed and food
chain do not occur.

releases

to land and water

The Inventory of
still
incomplete. Further research and data collection will be
carried out to verify the scale of releases from the source
sectors which have a high potential for release. Not just
measurements on concentrations, but also further research
on details of activity and processes will be included.

is

For the PCB sources the Commission will accelerate the
establishment of PCB inventories as Directive 96/59/EC
requires and will gain more knowledge on the different
open uses of PCBs. In that view, the Commission intends
to launch a study on the open uses of PCBs. The PCB
problem has been seen as an historic one but recent
studies indicate that there may be significant contemporary
emissions from a number of industrial processes. Therefore,
more recent data are required to assess whether PCBs are
formed in the processes or whether the findings are due to
re-emission of existing PCBs.

B. Risk assessment

Non dioxin-like PCBs

The Commission will address to the SCF (1) a request for
the non dioxin-like PCB’s
evaluation of
((cid:145)classical(cid:146)
or
(cid:145)non-coplanar(cid:146) PCBs) which have
toxicological
another
profile, which circulate more easily through muscles and
blood and affect directly the nervous system and brain
several orders of
development
magnitude more concentrated than dioxins
in aquatic
biota such as fish and shellfish.

and which could be

Development of measurement methods

It is necessary to perform more measurements in order to
in
1. control compliance with existing legislation and also,
order to 2. monitor the effects of executed measures, the
the environment and the trends. Therefore,
state of
research and technological development on
scientific
low-cost
the
and
measurement of dioxin and dioxin-like PCB contamination
in environmental samples in feed and food as well as
research in the field of continuous measurements of
dioxin emissions
to air will be promoted. Moreover,
guidelines and standards for sampling, data generation
and reporting will be developed.

applied

routine

easily

tests

for

During the EC/WHO seminar (Brussels, September 2000)
the WHO and the EC decided to jointly organise a
workshop to evaluate rapid screening methods and to
identify the research needs in this area.

(1) Scientific Committee on Food.

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Establishment of
bio-indicators

environmental

indicators,

including

In order to monitor the impact of regulatory controls on
the environment and on human exposure to dioxins and
PCBs indicators will be developed. The selection of environ-
mental indicators for monitoring purposes will be a short-
to medium term action, even though its monitoring is a
long-term action.
or
compartments will be selected to monitor their dioxin
and PCB concentration. This will be done in close coop-
eration with the Joint Research Centre,
the European
Environment Agency and the WHO.

organisms,

products

Key

C. Risk management

Prevention measures

Priority will be given to specific actions preventing the
formation and release of dioxins and PCB: the Commission
will promote the development and use of substitute or
modified materials, products and processes to prevent the
formation and release of dioxins and PCBs taking into
consideration the general guidance on prevention and
release reduction measures
the UNEP
POPs (1) Convention. This will be done by funding
research in this field and by coordinating the exchange of
information and experiences between Member States.

in Annex C of

Control of emissions

To reduce the total releases derived from anthropogenic
sources of dioxins and PCBs with the goal of
their
continuing minimisation and, where feasible, ultimate elim-
ination the Commission shall take the following measures
according to the obligations of the UNEP POPs Convention:

Promote the exchange of
information and experiences
between Member States as concerns the current application
that can
of available,
expeditiously achieve a realistic and meaningful
level of
release reduction or source elimination.

feasible and practical measures

Promote the use of BAT and technology transfer in sectors
with dioxin and PCB emission potential: the Commission
has organised an exchange of information between experts,
industry and environmental organisations, coordinated by
the European IPPC Bureau.
framework the
Commission will encourage the Member States to phase
in existing IPPC installations well before the deadline of
October 2007. The Commission will also encourage the
representatives of Member States
industries
concerned to continue to fully participate in the ongoing
information exchange on BAT, and pay special attention to
thereby
the sectors with dioxin/PCB emission potential
the final BREFs will contain progressive
ensuring that

and the

In this

(1) United Nations environment programme on persistent organic

pollutants.

BAT conclusions regarding dioxins/PCBs. The Commission
will encourage organisations representing the industries
concerned as well as public authorities to continue to
raise awareness within the industries concerned of the obli-
gations under the IPPC Directive, so that operators are well
prepared to implement BAT at the latest by October 2007.

Support voluntary measures for the prevention of accidents:
commercial enterprises can voluntarily participate in an
environmental management system according to Council
Regulation (EEC) No 1836/93 (EMAS) or according to
ISO 14000. This action is an additional effort to reduce
emissions from accidents in spite of existing legal regu-
lations which are laid down in the Council Directive
96/82/EC on the control of major accident hazards
involving dangerous substances. Therefore the Commission
(cid:145)best risk
will encourage the development of codes of
in the
management practices(cid:146)
relevant industries.

to prevent

accidents

Clean Air for Europe programme (CAFE): an important goal
for CAFE, as far as dioxin emissions to air are concerned, is
the various inventories (Eionet, Corinair,
to ensure that
EPER, EMEP)
identification of
are harmonised. The
measures to reduce dioxin emissions to the air is another
area in which links with CAFE are foreseen. The sectoral
coordination group to be set up under CAFE will foster
information exchange between CAFE,
inte-
gration dossiers and specific sectoral emission reduction
policies (such as IPPC). Dioxins will be one of the files to
be represented on this group.

the sectoral

Control of the quality of the environment

In order to address the problem of fraudulent dumping of
PCBs in the environment the Commission will
initiate a
debate within the Community to assess the suitability of
public or private subsidies for the disposal granted to the
holders of PCB-containing equipment to prevent any illegal
dumping.

The Commission will take all necessary steps to control
dioxins and PCBs in all the environmental compartments:

including dioxins and PCBs,

Water: The Commission supports two studies on priority
substances,
in the field of
water policy with regards to emissions, discharges and
losses, source identification, proposals for measures, and
quality standards. The (cid:145)marine global strategy(cid:146) will include
monitoring of micropollutants such as dioxins and PCBs in
water, sediment and ecosystem.

Soil: The Commission will establish the cartography of
highly polluted soils and sediments. A complete map with
accurate results can be only foreseen within 5-10 years.
Since the dioxin/PCB contamination of feed and food is
highly dependent on the soil and sediment contamination
this will provide competent authorities with an important
tool to limit the contamination of the feed and food chain
as much as possible.

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Waste: In order to ensure that stockpiles consisting of or
containing PCBs and wastes, including products and articles
upon becoming wastes,
containing or
contaminated with dioxins and PCBs are managed in a
manner protective of human health and the environment,
the Commission shall
following measures
take
according to the obligations of the Stockholm Convention:

consisting of,

the

(cid:151) support the development of appropriate strategies for
identifying (a) stockpiles consisting of or containing
PCBs; and (b) products and articles in use and wastes
consisting of, containing or contaminated with dioxins
and PCBs,

(cid:151) support the identification, to the extent practicable, of
stockpiles consisting of or containing PCBs on the basis
of the abovementioned strategies,

(cid:151) endeavour to develop appropriate strategies for ident-

ifying sites contaminated by dioxins and PCBs.

the

The Commission will promote the exchange of information
between inspectorates of the different Member States on the
subject of PCB waste and compliance with current EU regu-
lations. In the context of the BAT Reference document on
waste recovery and disposal activities, to be prepared in
2002 to 2004, special attention will be given to deter-
treatment of waste materials
mining BAT for
contaminated by PCBs and dioxins. The Commission
supports a study entitled (cid:145)Dioxins and other POPs in
wastes and their potential
in
order to fill the data gaps on the subject of the reuse of
contaminated waste in the feedingstuff production. Lands
have been heavily contaminated by disposal of dioxin and
PCB-containing waste. As one of many possible preventive
measures of
the
Commission is considering to amend Directive 86/278/EEC
on the protection of the environment, and in particular of
the soil, when sewage sludge is used in agriculture in order
to ensure a high level of environmental protection. A
careful
including
threshold limit values in sewage sludge for dioxins and
PCBs will be carried out.

to enter the food chain(cid:146)

the opportunity of

contamination of

assessment of

further

soils,

the

D. Research

In order

information and will

researchers across projects
facilitate
to 1.

The Commission will encourage all types of research that
will contribute to reduce the impact of dioxins and PCBs. It
will also bring together
to
coordination
exchange
among Member States.
identify
measures to reduce the contamination; 2. predict the effects
the
of
environment (both on ecotoxicological and epidemiological
aspects) in the future an integrated approach to research,
thus ensuring value for money and appropriate coverage of
the key issues is needed. This strategy sets a guidance list of
priorities for further research (Annex III) both for the
Commission and for the Member States.

controls; and 3. be able to monitor

regulatory

further

E. Communication to the public

To allay public concern, to raise awareness and to inform
the public, reliable, accurate, clear and comprehensible
information will be provided on activities of
the
Commission, on possible effects and risks, on uncertainties,
etc. During the EC/WHO seminar (Brussels, September
2000)
the WHO and the EC decided to jointly define
elements of an appropriate risk communication strategy on
the subject of dioxins and related compounds and develop
approaches, involving various fields of science as well as all
stakeholders. Within the CAFE programme active dissemi-
nation and communication to the public of
technical
information and policy development will be given high
the public in
profile,
the development and implementation of policy.

to ensure the full

involvement of

To educate the public: the general public has not only to be
informed, but has to play an active role in the prevention of
releases into the environment. The influence of the public
in the emissions of dioxins can generally only come from a
certain awareness concerning the domestic incineration of
(the public will be educated on the
wood, waste, etc.
environmental effects and the abuse of
inappropriate
materials as fuels for heating purposes (cid:151) such as treated
wood, coal for domestic combustion (cid:151) and on the risks of
domestic waste burning), but the influence of the public in
the releases of PCBs can be much more important, as
household electrical appliances are a very important
source of PCBs and the households can ensure that their
electrical appliances are given to authorised undertakings
them in an environmentally sound
that will dispose of
manner (the public will be educated on the disposal of
PCB containing
exchange of
information and experience between Member States as
regard education, training and awareness raising will be
promoted by the Commission.

equipment). Therefore,

F. Cooperation with third countries and international

organisations

Emissions in the accession countries are likely to be higher
than in the EU. The Commission intends to launch a
project in order to identify important dioxin sources and
to carry out measurements in the accession countries.
Cooperation with WHO is essential to avoid duplication
of work and will continue in the future. As a contracting
party to several conventions in the field of dioxins and
PCBs the Commission will continue international coop-
eration on this subject.

LONG-TERM ACTIONS (10 years)

the efficacy of existing legislation.

An important part of this strategy will be a long-term prep-
further identify source directed actions; and 2.
aration to 1.
to
evaluate
implement the (cid:145)environment health’ objectives in the 6th EAP
a set of actions are identified which relates to data collection,
monitoring and surveillance and further
identification of
measures.(cid:146)

In order

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A. Data collection on the level of dioxin/PCB contami-

nation in air, water (sediment) and soil:

(including vulnerable groups) will be proposed as well
as transitory restriction for consumption of natural food
from hotspots and with high bio-accumulation rate.

(cid:151) The Commission will support the collection of existing
data and the setting up of a geographical information
system (GIS) for the selected indicators. This GIS will be
integrated in the global environment GIS strategies.
Consequently (cid:145)hotspots(cid:146) of high contamination levels
will be identified.

(cid:151) The Commission will support the collection of epidemi-
ological and toxicological data in the same database in
order to be able to establish a link between environment
and health.

B. Monitoring and surveillance of the level of dioxin/PCB

contamination in air, water (sediment) and soil:

(cid:151) The Commission will support

the establishment of
programmes to monitor the level of contamination. It
is important to set up a very detailed and common
the selected
procedure of continuous monitoring of
indicators in the selected areas. Having a common
the results
methodology of monitoring for all areas,
will be comparable and an overall
trend could be
drawn across the EU.

(cid:151) The

will

Commission

and
measurements of the status and trends of the contami-
nation in order to measure progress in reducing the
presence of dioxins and PCBs in the environment.

conduct

surveys

(cid:151) The Commission will investigate the possibility to link
epidemiological data collection and monitoring of the
the 6th EAP
environment
implementation.

framework of

in the

(cid:151) The Commission will examine the opportunity to
develop a rapid alert and reaction system for acute or
emergent environmental dioxin and PCB dangers in the
framework of the 6th EAP. This system will help to
establish information consultation and coordination
procedures between Member States.

C. Identification of measures

The abovementioned information will provide a compre-
hensive picture of the environmental dioxin/PCB problem
and a good understanding of the trend, which will permit
further policy-making and evaluation. The Commission will
then further identify:

(cid:151) source directed measures to further reduce the environ-
mental contamination and to guarantee that maximum
levels in food and feed can be respected and target levels
achieved within a certain period of time,

(cid:151) measures to improve consumer’s protection: regular
revisions of feed and food limits, adjusted to environ-
mental contamination trends and to risk assessment

6.2. Strategy to reduce the presence of dioxins and PCBs

in feed and food

Food of animal origin is a predominant source of human
exposure to dioxins and PCBs. As food contamination is
directly related to feed contamination, an integrated approach
is followed to reduce dioxin/PCB incidence all along the food
chain, i.e. from feed materials through food-producing animals
to humans. Taking measures with regard to feed is therefore a
decisive step to reduce human intake. Measures in food and
feed solely based on establishing maximum levels would not be
sufficiently effective in reducing the level of feed and food
contamination unless the levels are set so low that a large
part of the feed and food supply would be declared unfit for
animal/human consumption. Besides the important measures
to limit the release of dioxins and PCBs into the environment,
other measures for aiming at the reduction of dioxins and
dioxin-like PCBs in feed and food, are envisaged to come
into application in the course of the year 2002.

legislative measures

These
foodstuffs consist of three pillars:

concerning

feedingstuffs

and

(cid:151) the establishment of maximum levels at a strict but feasible

level in food and feed,

(cid:151) the establishment of action levels acting as a tool for (cid:145)early
warning(cid:146) of higher than desirable levels of dioxin in food or
feed,

(cid:151) the establishment of

target

exposure of a large part of
within
the
Committees.

limits

recommended

levels, over time,

to bring
the European population
Scientific
the

by

Establishment of maximum limits

The establishment of maximum limits at a strict but feasible
level, gradually decreasing with time, in order to discard the
unacceptably highly contaminated products. The establishment
of such a limit is a necessary tool for management and to
ensure uniform application across the EU.

for

lead

limits

also for

unrealistic

foodstuffs,
because

feedingstuffs but
to

From a toxicological point of view,
limits should include
dioxins and dioxin-like PCBs. However, as the data on the
in
occurrence of dioxin-like PCBs are still very limited,
this
particular
approach may
the
contribution of the dioxin-like PCBs to the total contamination
load is different for different food and feed matrices and may
be high (up to four times the dioxin contribution). But not
acting immediately for dioxin-like PCBs should not prevent
immediate
are
proposed for dioxins (PCDD/F) only, awaiting more compre-
hensive data for dioxin-like PCBs. An active approach is
pursued to obtain these data and build up a reliable database
in order to allow a revision of the limits for dioxins before the
end of the year 2004 to cover also dioxin-like PCBs, and this in
accordance with the toxicological evaluation.

dioxins. Therefore measures

action for

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levels are the levels to be achieved in food and feed
Target
whereby it can be reasonably assumed that
the dietary
exposure of a large majority of the European population will
be within the
and
tolerable weekly intake
dioxin-like PCBs. These target values will be set in the light
of more accurate information on the impact of the environ-
mental measures on the reduction of the presence of dioxins
and dioxin-like PCBs
and
foodstuffs, more occurrence data, etc. Target values will act
as the driving force for measures necessary to further reduce
emissions into the environment.

in the different

feedingstuffs

for dioxins

A Commission Recommendation on action and target levels in
feed and food addressed to the member states will be adopted
at the same time as the Directive and Regulation on maximum
limits.

food and feed,

The measures to reduce the emissions of dioxins and PCBs
their presence in the
resulting in a downward trend of
environment,
active
approach pursued to reduce the presence of dioxins in feed
and food, based on the continued efforts of
the operators
will cause the contamination levels for the different feed/food
groups to shift to lower levels and to ultimately reach the
target levels. Therefore a regular review, gradually decreasing
the maximum limits and action levels will be necessary.

together with the

7. CONCLUSIONS

of

the

because

European citizens

Dioxins and PCBs are occupying a predominant situation in the
consciousness
these
compounds are known to cause severe and far-reaching
environmental and health effects. In spite of the existing legis-
lation and of
the progress already achieved in reducing
emissions and human exposure deficiencies still remain. An
integrated and systematic approach is missing. There is an
urgent need for action to further reduce emissions and avoid
environmental and adverse health effects from dioxins and
PCBs. Therefore it is essential that the Commission adopt a
strategy to reduce the presence of those compounds in the
environment,
to
medium-term and long-term actions. Such an integrated
approach would have to guarantee that the dioxin and PCB
problem is totally under control
in 10 years. At that point
this strategy will have to be assessed and eventually revised
this
to take account of
strategy could then be applied to reduce the presence of
other persistent hazardous substances in the environment.

the latest progress. The results of

including

short-

food,

feed

and

in

In order to ensure that all operators in the food and feed chain
continue to do efforts and take all the necessary measures to
limit the presence of dioxins in feed and food, it is envisaged to
set substantial stricter maximum limits within a period of five
years’ time.

With regard to feedingstuffs, the Commission submitted on 20
July 2001 draft measures establishing maximum levels for
dioxins and furans in several feed materials and feedingstuffs
for an opinion to the Standing Committee for Feedingstuffs.
Not having received a favourable opinion on the proposed
draft measures, the Commission has referred on August 2001
these proposed measures to Council for adoption (1).

With regard to foodstuffs, the Commission submitted on 25
July 2001 draft measures establishing maximum levels for
dioxins and furans in several foodstuffs for an opinion to the
Standing Committee for Foodstuffs. Also not having received a
favourable opinion on the proposed draft measures,
the
Commission has
referred on August 2001 also these
proposed measures to Council for adoption (2).

For the classical ((cid:145)non dioxin-like(cid:146)) PCBs which show a different
toxicological profile a risk assessment will be carried out and
will be followed by discussions on limit values proposals in the
coming years, at least in sea food, which is the main source of
human exposure in the EU.

Action levels and target levels

Permanent monitoring of the presence of dioxins and PCBs in
feed and food across the EU is necessary.
In case of an
abnormal
those compounds, sources
increase in the level
and/or pathways of contamination have to be identified.
Once identified, the measures to prevent or reduce contami-
nation from this source could be determined and applied.

to determine what has to be considered as an
In order
abnormal
is set. Action levels
increased level, an action level
are designed to trigger a proactive approach from competent
authorities and operators to identify sources and pathways of
contamination and to take measures
to eliminate them.
Exceeding the action level would also automatically imply an
analysis of the dioxin-like PCBs in order to build up quickly a
reliable database, besides the regular at random analysis of the
presence of dioxin-like PCBs in food and feed.

(1) Proposal for a Council Directive amending Directive 1999/29/EC on
nutrition

products

animal

undesirable
substances
(COM(2001) 493 of 28 August 2001).

and

in

(2) Proposal for a Council Regulation amending Regulation (EC) No
466/2001 setting maximum levels for certain contaminants in
foodstuffs (COM(2001) 495 of 28 August 2001).

C 322/14

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EXISTING COMMUNITY LEGISLATION REGARDING DIOXINS AND PCBs

ANNEX I

Waste incineration:

(cid:151) Council Directive 89/429/EEC of 21 June 1989 on the reduction of air pollution from existing municipal waste

incineration plants,

(cid:151) Council Directive 89/369/EEC of 8 June 1989 on the prevention of air pollution from new municipal waste

incineration plants,

(cid:151) Council Directive 94/67/EC of 16 December 1994 on the incineration of hazardous waste,

(cid:151) Directive 2000/76/EC of the European Parliament and of the Council of 4 December 2000 on the incineration of

waste.

Waste:

(cid:151) Council Directive 75/442/EEC of 15 July 1975 on waste,

(cid:151) Council Directive 91/689/EEC of 12 December 1991 on hazardous waste,

(cid:151) Council Regulation (EEC) No 259/93 on the supervision and control of shipments of waste within, into and out of

the European Community,

(cid:151) Council Directive 99/31/EC of 26 April 1999 on the landfill of waste,

(cid:151) Council Directive 75/439/EEC of 16 June 1975 on the disposal of waste oils.

Integrated pollution prevention and control:

(cid:151) Council Directive 96/61/EC of 24 September 1996 concerning integrated pollution prevention and control,

(cid:151) Commission Decision 2000/479/EC of 17 July 2000 on the implementation of a European pollutant emission

register (EPER) according to Article 15 of Council Directive 96/61/EC.

Water:

(cid:151) Council Directive 80/68/EEC of 17 December 1979 on the protection of groundwater against pollution caused by

certain dangerous substances,

(cid:151) Council Directive 76/464/EEC of 4 May 1976 on pollution caused by certain dangerous substances discharged into

the aquatic environment of the Community,

(cid:151) Directive 2000/60/EC of the European Parliament and of the Council of 23 October 2000 establishing a framework

for Community action in the field of water policy.

Restrictions on marketing and use of chemicals:

(cid:151) Council Directive 85/467/EEC of 1 October 1985 amending for the sixth time (PCBs/PCTs) Directive 76/769/EEC on
the Member States relating to

the laws, regulations and administrative provisions of

the approximation of
restrictions on the marketing and use of certain dangerous substances and preparations,

(cid:151) Council Directive 91/173/EEC of 31 March 1991 amending for the ninth time Directive 76/769/EEC on the
approximation of the laws, regulations and administrative provisions of the Member States relating to restrictions
on the marketing and use of certain dangerous substances and preparations.

Other PCB legislation:

(cid:151) Council Directive 76/403/EEC of 6 April 1976 on the disposal of polychlorinated biphenyls and polychlorinated

terphenyls (banning the use of PCBs in open applications such as printing inks and adhesives),

(cid:151) Council Directive 96/59/EC of 16 September 1996 on the disposal of polychlorinated biphenyls and polychlorinated

terphenyls (PCB/PCT).

Major accident hazards:

(cid:151) Council Directive 82/501/EEC of 24 June 1982 on the major-accident hazards of certain industrial activities,

(cid:151) Council Directive 96/82/EC of 9 December 1996 on the control of major accident hazards involving dangerous

substances.

Animal nutrition:

(cid:151) Council Directive 1999/29/EC of 22 April 1999 on the undesirable substances and products in animal nutrition,

(cid:151) Commission Regulation (EC) No 2439/1999 of 17 November 1999 on the conditions for the authorisation of
in feedingstuffs, as amended by

additives belonging to the group (cid:145)binders, anti-caking agents and coagulants(cid:146)
Commission Regulation (EC) No 739/2000 of 7 April 2000.

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ANNEX II

DIOXIN/PCB STUDIES FINANCED BY THE COMMISSION

(cid:151) (cid:145)The European dioxin inventory: Identification of relevant industrial sources of dioxins and furans in Europe(cid:146), by

North Rhine-Westphalia State Environment Agency, 1997,

(cid:151) (cid:145)The European dioxin emission inventory (cid:151) Stage II(cid:146), by LUA-NRW, January 2001,

(cid:151) (cid:145)Releases of dioxins and furans to land and water in Europe(cid:146), by AEA Technology, September 1999,

(cid:151) (cid:145)Compilation of EU dioxin exposure and health data(cid:146), by AEA Technology, England, October 1999,

(cid:151) (cid:145)Evaluation of occurrence of PCDD/PCDF and POPs in wastes and their potential to enter the food chain(cid:146), by the

University of Bayreuth at the Department of Prof. Hutzinger, September 2000,

(cid:151) (cid:145)Exploration of possible future POP control areas(cid:146), AEA Technology Environment, September 2000,

(cid:151) (cid:145)Dioxins and other POPs in wastes and their potential to enter the foodchain (cid:151) Stage II(cid:146),

(cid:151) (cid:145)PCDD/Fs, PCBs, PBBs and PBDD/Fs: environmental pathways for human exposure(cid:146), by Arbeitsgemeinschaft Dioxin

Projekt,

(cid:151) (cid:145)Environmental cycling of selected persistent organic pollutants in the Baltic region (Popcycling-Baltic)(cid:146),

(cid:151) (cid:145)Global mass balance of persistent semi-volatile organic compounds: an approach with PCB as an indicator

(GLOBAL-SOC)(cid:146),

(cid:151) (cid:145)Measuring and modelling the dynamic response of remote mountain lake ecosystems to environmental change: a

programme of mountain lake research (MOLAR)(cid:146).

EXPOSURE AND RISK ASSESSMENTS PERFORMED BY THE COMMISSION

(cid:151) (cid:145)Assessment of dietary intake of dioxins and related PCBs by the population of EU Member States(cid:146), scientific

cooperation on questions relating to food (cid:151) Task 3.2.5. (cid:151) 7 June 2000,

(cid:151) (cid:145)Dioxin contamination of feedingstuffs and their contribution to the contamination of food of animal origin(cid:146),

Opinion of the Scientific Committee on Animal Nutrition adopted on 6 November 2000,

(cid:151) (cid:145)Risk assessment of dioxins and dioxin-like PCBs in food(cid:146), Opinion of the Scientific Committee for Food (SCF)

adopted on 22 November 2000,

(cid:151) Update of the (cid:145)Risk assessment of dioxins and dioxin-like PCBs in food(cid:146) based on new information available since the
adoption of the SCF opinion of 22 November 2000; Opinion of the Scientific Committee for Food adopted on 30
May 2001,

(cid:151) (cid:145)Risks of environmental dioxins: Linking epidemiology with toxicity studies to strengthen accurate risk assessment(cid:146),

February 2000.

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ANNEX III

RESEARCH PRIORITIES

Dioxins and PCBs

1. Environmental fate and transport

Atmospheric environment

(cid:151) Vapour/particle partitioning of individual PCDD/F congeners

(cid:151) Particle size distribution data for PCDD/Fs associated with particles

(cid:151) Measurements of wet and dry deposition

(cid:151) Modelling studies of PCDD/F behaviour in the atmospheric environment

(cid:151) Long range transport (over Europe)

Terrestrial environment

(cid:151) Define the rates of transport and degradation in soils

(cid:151) The significance of root uptake especially the interspecies variability

(cid:151) PCDD/Fs transferred to plant via soil splash and animal trampling

(cid:151) Assessment of air to soil transfer and of the various deposition mechanisms to vegetation (wet, dry

particle, and dry gaseous)

(cid:151) Fate and transport of PCBs and PCDD/Fs in landfills

(cid:151) Studies on the levels of PCDD/Fs associated with burning PCP treated wood

(cid:151) Studies on the levels and sources of PCDD/Fs in composted material and the environmental fate of

the PCDD/Fs in the composted material and in sewage sludge

(cid:151) Modelling studies of PCDD/F behaviour in the terrestrial environment

(cid:151) Appropriate plants to be used as bio-accumulators of PCBs and PCDD/Fs

(cid:151) More measurements of background concentrations of PCBs and PCDD/Fs in vegetation and animal

tissue and definition of reference values

m

m

H

H

H

m

H

m

H

H

H

H

H

H

H

Aquatic environment: general research has been very extensive, therefore it is proposed to focus on more specific gaps

(cid:151) Quantify input of PCDD/Fs from soil run-off at catchment level

(cid:151) Further information about the stability of PCBs and PCDD/Fs in sediments under different redox
environments especially if the toxicity of the PCBs and PCDD/F mixture increases through degra-
dation

(cid:151) Development of standardised sampling strategies for determining representative PCDD/F concen-

trations in fish and sediments

(cid:151) Partitioning of PCDD/Fs between the particulate and dissolved organic phases in the water column;

apply experimental work to field situations

(cid:151) Availability of organic carbon-associated PCDD/Fs in sediments for aquatic ecosystem

(cid:151) Modelling studies of PCB and PCDD/F bio-accumulation/bio-magnification in the aquatic

environment and the food chain

(cid:151) Degradation of PCBs into metabolites in water and sediments

m

m

H

m

H

H

H

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2. Ecotoxicology and human health

(cid:151) Estimates of human exposure to dioxin and PCBs through ingestion, inhalation, skin contact

(cid:151) The effects of chronic or periodic exposure to PCBs (and metabolites) and to dioxins

(cid:151) Identification of particular vulnerable species as bio-indicator for the monitoring and protection of

(cid:145)at risk(cid:146) habitats or sites

(cid:151) Elaboration of a methodology to set limit values for lower effect levels in fauna

(cid:151) Upgrading knowledge on bio-accumulation factors in the trophic chain

(cid:151) Establish a toxic equivalent factor for non-coplanar PCB congeners with thyroid interaction or

neurotoxicity

(cid:151) Significance of climate, agricultural practices and dietary regimes to PCB and dioxin exposure in
southern Member States of the EU, which differ from those of the northern Member States

(cid:151) Epidemiological studies, including target groups like foetus, infants, etc.

(cid:151) Identification of biomarkers of health effects in humans and animals

3. Agrofood industry

(cid:151) Studies on the carry-over and establishing pertinent transfer factors for the different PCBs and
PCDD/F from soil, sediment and feedingstuffs to animals tissues, including fish (e.g. meat, fat) and
products (e.g. milk and eggs). Particular attention needs to be paid to the dioxin-like PCBs:

(cid:151) determination of transfer factors for PCDD/F from soil and feedingstuffs to animal tissues and

products for cattle (ruminants),

(cid:151) determination of transfer factors for dioxin-like PCBs from soil and feedingstuffs to animal

tissue and products (milk) for cattle (ruminants),

(cid:151) determination of transfer factors for PCDD/F and PCBs (in particular dioxin-like PCBs) from soil

and feedingstuffs to animal tissues and products (eggs) for poultry,

(cid:151) determination of transfer factors for PCDD/F and PCBs (in particular dioxin-like PCBs) from

feedingstuffs to animal tissues and products for pigs,

(cid:151) determination of transfer factors for PCDD/F and PCBs (in particular dioxin-like PCBs) from

sediment and feedingstuffs for fish

(cid:151) A characteristic profile of dioxin-like compounds congener in beef

(cid:151) Assessment of agricultural or industrial practices (such as hot-air feedstuff drying, use of chemical
substances like solvents, pelleting aids etc. for the production of feedingstuffs, fermentation, etc.)
for their potential to produce PCDD/Fs

(cid:151) Quantification of potential PCB and PCDD/F input into animal feedstuff via recyclates such as used

edible oils and fats, slaughterhouse wastes etc.

(cid:151) PCDD/F in manure

(cid:151) Source data on PCBs

4. Source inventories

(cid:151) Contribution of waste and recycling of waste (including processes)

to total emissions into

environment/food chain

(cid:151) Contribution of products to total emission into the environment (e.g. cosmetics, pesticides, textiles,

plastics, paper, etc.)

(cid:151) Domestic incineration of wood and coal combustion (domestic + industrial)

(cid:151) Reservoir sources (behaviour, degradation processes, decontamination methods)

(cid:151) Natural sources of dioxins and their share in the overall release into the environment

H

H

H

H

H

H

H

H

m

H

m

H

H

H

H

m

H

H

m

H

H

H

H

H

m

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(cid:151) New sources of PCBs as by-products of chemical industry

(cid:151) Dioxin from accidental and incidental fires (buildings, vehicles, waste, etc.)

5. Analytical aspects

(cid:151) Investigation on cheaper, faster and reliable analytical alternatives and their limitations

(cid:151) A standard approach to interpreting data sets containing values below the limit of detection (LOD)

(cid:151) Inter-calibration of dioxin laboratories in order to ensure consistent results across Europe

(cid:151) Guidelines/standards for sampling, data generation and reporting

6. Decontamination measures

(cid:151) Decontamination methods for products (mother milk, fish oil, etc.)

(cid:151) Decontamination methods for soils and sediments

7. Monitoring

(cid:151) Development of a geographical information system (GIS) integrated in the global environment GIS

strategies

H = high priority
m = medium priority

m

m

H

m

H

H

H

H

H