Communication from the Commission to the Council, the European Parliament and the European Economic and Social Committee on implementation of the Community Strategy for dioxins, furans and polychlorinated Biphenyls (COM(2001) 593)
Date: 2004-04-13
Institutions: European Commission
Subjects: environmental protection, public health, toxic substance, toxicology, waste management

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 13.4.2004 
COM(2004) 240 final 

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

on implementation of the Community Strategy for dioxins, furans and 
polychlorinated Biphenyls (COM(2001) 593) 

EN 

   EN 

 
 
 
  
TABLE OF CONTENTS 

1. 

2. 

2.1. 

2.2. 

2.3. 

2.4. 

2.5. 

2.6. 

2.7. 

2.8. 

2.9. 

3. 

3.1. 

3.2. 

4. 

5. 

Context ......................................................................................................................... 3 

Progress achieved with the actions for the environment.............................................. 3 

Introduction .................................................................................................................. 3 

Acceding and Candidate Countries .............................................................................. 4 

Research ....................................................................................................................... 6 

Communication to the public and awareness rising..................................................... 8 

Co-operation at international level............................................................................... 8 

Best Available Techniques reference documents......................................................... 9 

Integrated dioxin and PCB monitoring in the Baltic region....................................... 10 

Regulation on persistent organic pollutants ............................................................... 10 

Other progress ............................................................................................................ 11 

Progress achieved with the actions for feed and food ................................................ 13 

Integrated approach .................................................................................................... 13 

Specific issues ............................................................................................................ 15 

Summary .................................................................................................................... 17 

Next steps ................................................................................................................... 18 

2 

 
 
  
 
1. 

CONTEXT 

Dioxins, furans and polychlorinated biphenyls (PCBs) are a group of toxic and 
persistent  chemicals  that  affect  human  health  and  the  environment.  They  can 
cause  impairment  of  the  immune  system,  the  nervous  system,  the  endocrine 
system and the reproductive functions and are also suspected of causing cancer. 
Foetuses  and  newborn  children  are  most  sensitive  to  exposure.  There  is 
considerable public, political and scientific 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. 

A  general  reduction  of  dioxin  and  PCB  levels  has  already  been  achieved  over 
the past two decades through various reduction measures, but there is need for 
further action to protect human health. To reduce human intake it is important to 
reduce the levels in the food chain since food consumption is the most important 
route  for  human  exposure.  Contamination  of  the  food  chain  is  caused  by 
environmental  contamination.  Measures  to  reduce  the  presence  of  dioxins  and 
PCBs therefore need to be taken both for the environment and for feed and food. 
On 24 October 2001 the Commission adopted a Communication to the Council, 
the  European  Parliament  and  the  Economic  and  Social  Committee  on  a 
Community Strategy for dioxins, furans and PCBs1. The Strategy is in two parts: 
a strategy to reduce the presence of dioxins and PCBs in the environment and a 
strategy to reduce the presence of dioxins and PCBs in feed and food. 

On  12  December  2001  the  Environment  Council  adopted  Conclusions  on  the 
Commission  Communication,  in  which  it  supported  the  Commission  Strategy 
and requested the Commission to report back on implementation of the Strategy 
at the end of 2003 and thereafter every three years. This Communication is the 
first report summarising the main progress over the first two years (end of 2001 
to end of 2003) with the actions for the environment (section 2) and the actions 
for feed and food (section 3). 

2. 

PROGRESS ACHIEVED WITH THE ACTIONS FOR THE ENVIRONMENT 

2.1. 

Introduction 

The ten-year Strategy lists a large number of actions for the short, medium and 
long  term.  In  the  implementation  of  the  Strategy  priority  has  been  given  to 
aspects  stressed  in  the  Council  Conclusions,  inter  alia  the  involvement  of  the 
Acceding and Candidate Countries (2.2). 

Other  key  actions  for  the  short  to  medium  term  include  research  (2.3),  public 
awareness  raising  (2.4),  co-operation  at 
level  (2.5)  and 
development of best available techniques reference documents (2.6).  

international 

1 

COM(2001) 593 final. 

3 

 
 
  
 
                                                 
For the long term the actions relate to the environment and health objectives in 
the Sixth Environment Action Programme. These actions include integrated data 
collection  in  order  to  establish  a  link  between  environment  and  health, 
establishment  of  monitoring  programmes  and  identification  of  new  measures 
(2.7–8).  The  actions  undertaken  in  this  area  are  linked  to  the  European 
Environment  and  Health  Strategy2  and  the  results  will  contribute  to  the 
preparation of the Environment and Health Action Plan 2004–2010 that will be 
presented in June 2004. 

Some areas where the work is in an initial phase are summarised under “Other 
progress” (2.9) together with a summary of the results of the study “Preparatory 
actions in the field of dioxins and PCBs”. 

2.2. 

Acceding and Candidate Countries 

For  the  Acceding  and  Candidate  Countries  three  important  needs  are  being 
addressed:  the  need  to  identify  emission  sources,  the  need  to  assess 
contamination  levels  and  human  exposure  and  the  need  to  develop  dioxin 
expertise and capacity. Three projects have been launched in this area, covering 
all thirteen Acceding and Candidate Countries. They are described below. 

2.2.1.  Emissions in Acceding and Candidate Countries 

The project “Dioxin Emissions in Acceding and Candidate Countries”3 consists 
of  two  major  activities:  1)  developing  an  inventory  of  dioxin  emissions  to  air, 
water and land in the Acceding and Candidate Countries, and 2) making a series 
of  supporting  air  emission  measurements  to  improve  the  quality  of  knowledge 
on dioxin emissions in these countries. 

A  secondary  objective  of  the  activities  is  to  support  the  development  of 
capacities and expertise within the countries to the level needed for EU policy in 
the  field  of  dioxins.  Work  on  both  the  inventory  and  the  measurements  are 
therefore done in close co-operation with the national experts. The results of the 
study  can  help  the  countries  to  develop  and  complete  a  database  of  dioxin 
sources and emission factors. 

The project is now in its initial stage. Participating countries are in the process 
of  delivering  the  data  and  information  needed  to  build  the  first  version  of  the 
inventory.  The  first  series  of  measurements has taken place during the autumn 
and winter of 2003. Companies from the Acceding and Candidate Countries and 
others  have  recently  been  invited  to  submit  proposals  to  perform  the 
measurements. 

2 
3 

COM(2003) 338 final. 
http://www.shmu.sk/sms/dioxin-BA/ 

4 

 
 
  
 
                                                 
2.2.2.  Environmental  levels  and  human  exposure  in  Acceding  and  Candidate 

Countries 

The  aim  of  the  project  “Dioxins  and  PCBs:  Environmental  levels  and  human 
exposure in Acceding and Candidate Countries”4 is to prepare an overview and 
an  analysis  of  the  data  available  both  on  environmental  levels  of  dioxins  and 
PCBs in the Acceding and Candidate Countries and on human exposure to them. 
A secondary aim of the project is to contribute to capacity building. 

The  process  of  collecting  and  evaluating  information  on  environmental 
contamination levels and human exposure is still ongoing. This is done in close 
co-operation with the competent authorities and experts from the Acceding and 
Candidate Countries. There are significant differences in the availability of data 
among  the  countries,  principally  because  of  the  different  levels  of  monitoring 
and  research  activities.  The  information  obtained  will  be  structured  and  where 
possible  the  results  will  be  compared  with  the  corresponding  data  for  the  EU.

Information on competent experts, institutions, laboratories and PCB destruction 
facilities  has  been  compiled  for  nearly  all  of  the  countries.  As  for  regulatory 
aspects,  it  seems  that  the  main  requirements  of  EU  legislation  have  been 
transposed into national legislation in all countries, although full implementation 
has not yet been achieved.  

2.2.3. 

Joint  Research  Centre  project  on  emissions  in  the  Central  and  East  European 
Countries  (Extension  to  Acceding  and  Candidate  Countries  of  mobile  and 
stationary emission standards in order to support integration) 

This project5, which is one of the activities of the Joint Research Centre (JRC) to 
support enlargement, was refocused following the Council conclusions to assist 
implementation  of  the  Dioxin  Strategy  in  the  Acceding  and  Candidate 
Countries. Under the project a number of actions have been carried out with the 
aim both of improving the knowledge of the situation and of training scientists 
from all of these countries in dioxin-related issues. 

The  results  show  that,  compared  with  the  Member  States,  profiles  of  dioxin 
sources  and  the  technologies  involved  are  different  in  the  Acceding  and 
Candidate  Countries,  with  non-industrial  sources,  such  as  coal  for  domestic 
heating,  accounting  for  a  much  greater  share.  There  is  thus  a  risk  that  reports 
may underestimate dioxin emissions. Since the main source oriented EU policy 
instruments  do  not  target  small  sources  they  may  not  be  sufficient  to  diminish 
dioxin emissions in the Acceding and Candidate Countries. National approaches 
will have to be developed to address this issue. 

4 
5 

http://www.eu-pops.org/ 
JRC Report EUR 20779, available at http://europa.eu.int/comm/environment/dioxin/ 

5 

 
 
  
 
 
 
 
 
 
                                                 
Municipal waste incineration is far less common in the Acceding and Candidate 
Countries than in the EU. Dioxin emissions from these sources are therefore not 
as significant as they used to be in the EU, when municipal waste incinerators 
were  less  controlled.  However,  hazardous  and  hospital  waste  incinerators  may 
be significant sources of emissions, at least in some countries. 

A lack of competent dioxin sampling groups has been identified, although some 
of  the  countries  do  have  dioxin  analysis  laboratories.  Of  the  four  laboratories 
that  took  part  in  an  international  inter-comparison  exercise  on  dioxin  analysis 
three  proved  very  accurate,  while  only  one  performed  poorly.  The  lack  of 
sampling groups could make it difficult to implement EU instruments to reduce 
dioxin emissions. 

A  wide  network  of  more  than  100  partners  from  the  Acceding  and  Candidate 
Countries  has  been  created  and  several  workshops  have  been  arranged.  The 
training  workshop  “Determination  of  Dioxins  in  Industrial  Emissions”  was 
attended  by  34  scientists  from  the  Acceding  and  Candidate  Countries.  The 
response of the participants was positive since many of these countries have no 
experience  of  dioxin  emission  sampling  but  still  urgently  need  to  develop 
capabilities that will enable compliance monitoring  and the issuing  of permits. 

A workshop on small sources of dioxin emissions identified a need to dedicate 
more  efforts  to  research  into  the  contribution  of  coal  combustion  to  dioxin 
emissions. The JRC is preparing actions to address this issue. 

2.3. 

Research 

2.3.1.  Updating JRC laboratory facilities 

During  2002  the  dioxin  laboratory  facilities  of  the  JRC  were  updated  and 
dioxin-like  PCBs  were  included  in  the  existing  routine  for  dioxins  and  furans. 
The  performance  of  the  facilities  was  evaluated  and  confirmed  through  the 
successful  participation  in  two  international  inter-calibration  experiments  for 
various sources such as fly ash, soil, sediment and fish. 

2.3.2.  Dioxins  and  other  persistent  organic  pollutants  (POPs)  in  by-products, 

recyclates and wastes and their potential to enter the food chain – Stage II 

The  final  report  on  the  project  “Dioxins  and  other  POPs  in  by-products, 
recyclates and wastes and their potential to enter the food chain – Stage II”6 was 
published in September 2002. It is a continuation of the study “Evaluation of the 
occurrence of dioxins and POPs in wastes and their potential to enter the food 
chain”,  which  set  out  to  investigate  to  what  extent  the  use  of  contaminated 
wastes in the production of animal feedingstuffs can threaten public health via 
the  food  chain.  Stage  II  closes  data  gaps  that  had  been  identified  in  the  first 
study  and  develops  a  sampling  programme  and  a  sampling  strategy  for 
monitoring  of  POPs  and  waste  in  the  food  chain.  It  also  provides  conclusions 

6 

http://europa.eu.int/comm/environment/dioxin/ 

6 

 
 
  
 
 
 
 
                                                 
and  recommendations  for  further  research,  data  collection  and  reduction  of 
human exposure. 

Results  so  far  suggest  that  about  one  sixth  of  human  exposure  in  the  EU 
Member  States  may  be  caused  by  the  use  of  by-products  in  feedingstuffs. 
Accidents or fraud can increase this share drastically. Still more information is 
needed to arrive at a full picture of the extent to which the use of recycled by-
products  in  feedingstuffs  affects  human  exposure.  Consequently,  the  study 
includes a proposal for an EU-wide sampling campaign to fill these data gaps. 
This sampling plan is currently under evaluation with a view to continuation of 
the project (stage III). 

The  third  stage  of  the  project  would  consist  of  collecting  samples  of  seven 
individual  feedingstuff  components  and  carrying  out  detailed  investigations  of 
manufacturing  processes.  The  objective  is  to  provide  a  clear  basis  for 
management decisions in those areas where the largest reductions of POP input 
in the human food chain can be achieved.  

2.3.3.  Projects on dioxins in soil and waste 

A  number  of  experimental  dioxin  projects  touching  on  various  aspects  are  in 
progress  at  the  JRC.  They  deal  for  example  with  potential  human  exposure  to 
dioxins from recycled oils and fats and with dioxin contamination from different 
types of soil amendments.7 

2.3.4.  Projects on the preparation of certified reference materials 

The Institute for Reference Materials and Measurements (IRMM) at the JRC has 
developed  a  set  of  certified  reference  materials  for  PCBs  in  pork  fat.  The 
certified  reference  materials  are  intended  as  quality  assurance  tools,  allowing 
laboratories involved in monitoring programmes to check the quality of the data 
they  produce.  This  should  eventually  lead  to  an  improved  comparability  of 
monitoring data regarding dioxins, furans and PCBs across Europe. 

2.3.5.  Development and validation of screening methods 

There is a strong need for rapid screening methods for the detection of dioxins 
in  food  and  feed  that  can  be  used  to  analyse  a  high  number  of  samples, 
subjecting  only  positive  samples  to  more  expensive  analyses  applying  high 
resolution  mass  spectrometry.  In  November  2003  the  IRMM  finalised  a 
validation study of a cell line based screening method indicating that this type of 
methods needs further refinement. 

7 

list  of 

A 
in 
the  projects 
http://europa.eu.int/comm/environment/dioxin/ 

is  given 

the  annex 

to 

this 

report,  available  at 

7 

 
 
  
 
                                                 
2.3.6.  RTD Framework Programmes 

Spending on research involving dioxins and PCBs was increased significantly in 
the Fifth RTD Framework Programme (1998–2002), the total amount rising to 
12  million  euros8.  The  Quality  of  Life  and  Management  of  Living  Resources 
Thematic Programme spent most of this amount sponsoring six projects9. These 
ongoing  projects  concentrate  mostly  on  risk  assessment  of  dioxins  and  PCBs, 
focusing  on  various  endpoints  such  as  cancer  or  fertility,  also  involving 
organisations  from  Eastern  European  countries.  The  Energy,  Environment  and 
Sustainable  Development  Programme  has  financed  one  project  on  the  arctic 
food chain. 

Under the Sixth Framework Programme (2002–2006), a Network of Excellence 
(CASCADE) is currently being negotiated with a budget of 14.4 million euros 
from Priority 5 on Food Quality and Safety. It focuses on durable integration of 
European  research  into  the  effects  on  human  health  (cardiovascular  disease, 
various cancers, decline in fertility etc.) caused by chemical residues (including 
PCBs and dioxins) in the diet. Priority 5 is also co-financing a Specific Targeted 
Research  Project  called  DEVNERTOX  with  a  budget  of  2.4  million  euros 
focused on a variety of effects of mixtures of neurotoxic substances (PCBs and 
methylmercury) contaminating food.10  

2.4. 

Communication to the public and awareness rising 

A  web  site  on  dioxin  exposure  and  health  has  been  set  up  at 
http://europa.eu.int/comm/environment/dioxin. It gives an overview of the issue 
and  contains  links  to  the  most  important  documents  (e.g.  the  Dioxin  Strategy 
and the Environment and Health Strategy) and several studies and projects. 

The Commission is preparing a workshop on raising awareness of bad practices, 
such as open burning of waste or the use of waste as combustion material. The 
competent  authorities  from  the  Acceding  and  Candidate  Countries  and  the 
present Member States will be invited to attend. 

2.5. 

Co-operation at international level 

2.5.1.  Ratification of international agreements 

Two  important  international  instruments  have  been  adopted  on  persistent 
organic pollutants (POPs): the UNECE Protocol and the Stockholm Convention. 
The  UNECE  Protocol  entered  into  force  on  23  October  2003,  but  additional 
ratifications are needed before the global Stockholm Convention can enter into 
force.  In  order  to  comply  with  the  EU  commitment  to  ratify  these  instruments 
without delay, the Commission has proposed a regulation to give effect to their 

8 

9 

10 

http://europa.eu.int/comm/research/endocrine/index_en.html  for  general  information  and  an 
overview of all research projects and related activities. 
http://www.anemone-project.dk/ 
investigating  neurobehavioral 
endpoints  and  markers  of  neurotoxicant  exposures,  http://www.inuendo.dk/  for  the  Inuendo-
project studying time to pregnancy and semen quality in Inuit and European population groups. 
See 7. 

the  Anemone-Project 

for 

8 

 
 
  
 
                                                 
main provisions, which are not yet covered by Community legislation (see 2.8 – 
Regulation on POPs). 

The international agreements aim at phasing out these dangerous substances by 
controlling their production, use, import, export, emissions and disposal. Some 
of  the  obligations  of  the  Regulation  proposed  by  the  Commission  are  even 
stricter than the international agreements. 

In  the  framework  of  the  Stockholm  Convention  the  Commission  has  been 
actively  involved  in  expert  groups  that  are  drafting  guidance  on  BAT  (best 
available 
the 
unintentional production of dioxins, furans and PCBs,  and  producing technical 
guidelines  for  environmentally  sound  management  of  waste  containing  these 
substances. 

techniques)  and  BEP  (best  environmental  practice)  for 

2.5.2.  Rapid screening methods 

A  joint  EC/WHO  initiative  was  set  up  in  November  2001  with  the  aim  of 
organising  a  workshop  to  review  and  scientifically  evaluate  rapid  screening 
methods  for  dioxins  and  related  compounds,  and  to  identify  research  needs  in 
this  area.  An  inventory  of  all  available  methods  will  be  made.  This  inventory 
will  include  a  detailed  description  of  the  different  screening  methods  and 
address the strengths and weaknesses of each method and the applicability and 
limitations of the methodology. 

2.6. 

Best Available Techniques reference documents 

Since the adoption of the Strategy, the Commission has continued to organise an 
exchange  of  information  on  BATs  in  various  sectors.  The  recently  finalised 
documents  include  information  on  dioxin-related  prevention  and  control 
measures  in  large-volume  organic  chemicals  production,  manufacture  of  other 
chemicals, mineral oil refining and production of textiles. There is also a recent 
document  on  the  monitoring  of  releases,  including  dioxin  emissions.  Relevant 
documents  under  preparation  cover  foundries,  large  combustion  plants,  waste 
incineration, other waste treatment, and disposal of animal by-products. 

In order to get a better view of the current knowledge and available information 
on  emissions  of  dioxins  from  foundries  and  their  abatement,  a  workshop  was 
organised  by  the  foundry  industry  in  September  2003.  The  workshop  showed 
that it is not possible to identify the single controlling factors in the reformation 
of  dioxins.  This  makes  it  difficult  to  identify  appropriate  preventive  measures 
that can guarantee low emission levels. Moreover, there is very little industrial 
experience with secondary control measures. 

9 

 
 
  
 
2.7. 

Integrated dioxin and PCB monitoring in the Baltic region 

The  long-term  monitoring  objectives  of  the  Strategy  are  being  addressed 
through  the  preparation  of  a  pilot  project  on  integrated  dioxin  and  PCB 
monitoring  in  the  Baltic  area  in  the  framework  of  the  European  Environment 
and Health Strategy11 and the Marine Strategy12. 

The  Commission  will  examine  the  possibility  of  linking  current  environment, 
fish and human health monitoring data and programmes for dioxins and PCBs in 
the Baltic Area and will identify ways of developing integrated environment and 
health  monitoring.  This  will  provide  the  information  needed  to  assess  the  link 
between  the  release  of  these  substances  into  the  environment,  their  transport 
through  different  environmental  compartments,  their  accumulation  in  the 
environment, the ecosystem and food, and their effects on health. The integrated 
information will be used as a basis for further policy development. 

In September 2003 a technical working group on dioxin and PCB monitoring in 
the  Baltic  area  was  established.  The  working  group  has  prepared  a  baseline 
report  including  an  overview  of  existing  dioxin  and  PCB  monitoring 
programmes in the Baltic countries, the problems and shortcomings of existing 
monitoring  systems,  and  requirements  for  integrated  environment  and  health 
monitoring of dioxins and PCBs. In a second stage, by the end of March 2004, 
the working group will establish options for action and recommendations for the 
Commission’s  Environment  and  Health  Action  Plan  2004-2010.  The  results 
from  the  pilot  project  will  be  used  to  develop  a  “European  integrated 
environment and health monitoring and response system” that will be extended 
to other substances. 

2.8. 

Regulation on persistent organic pollutants 

On  12  June  2003  the  Commission  adopted  a  Proposal  for  a  Regulation  of  the 
European  Parliament  and  of  the  Council  on  persistent  organic  pollutants  and 
amending  Directives  79/117/EEC  and  96/59/EC13.  The  proposal  aims  at 
implementing  the  obligations  of  the  Stockholm  Convention  and  the  UNECE 
Protocol  on  POPs.  Several  control  measures  on  dioxins,  furans  and  PCBs  are 
included. 

The proposal obliges Member States to develop and maintain release inventories 
and  National  Action  Plans  designed  to  identify,  characterise  and  reduce  the 
releases  of  these  substances,  as  laid  down  in  the  Stockholm  Convention.  Both 
the  release  inventories  and  the  National Action  Plans  are  regarded  as  essential 
tools for the cost-effective and continuing reduction of the release of by-product 
POPs. 

11 
12 
13 

COM(2003) 338 final. 
COM(2002) 539 final. 
COM(2003) 333 final. 

10 

 
 
  
 
                                                 
The proposal also lays down stringent rules on waste containing or consisting of 
POP  substances,  including  dioxins  and  furans.  As  a  general  rule,  POPs  waste 
should be disposed of without delay in such a way that POP content is destroyed 
or  irreversibly  transformed  into  substances  which  do  not  exhibit  POP 
characteristics. 

Furthermore,  it  is  proposed  that  the  Commission  and  the  Member  States,  in 
close  co-operation,  establish  appropriate  programmes  and  mechanisms, 
consistent with the state of the art, for the continuous provision of comparable 
monitoring  data  on  the  presence  of  dioxins,  furans  and  PCBs  in  the 
environment.  This  obligation  goes  beyond  the  provisions  of  the  international 
agreements,  but  it  is  based  on  the  Dioxin  Strategy.  Taking  into  account  the 
current lack of data on environmental levels and trends for dioxins, furans and 
PCBs, and the need to evaluate the effectiveness of control measures, a specific 
provision on monitoring is considered necessary. However, it is essential to have 
the measurement and monitoring tools required for those activities. 

Lastly it is proposed that Member States provide the Commission with summary 
information on release inventories and the presence of dioxins, furans and PCBs 
in the environment every three years. 

The  Commission  proposal  was  forwarded  to  the  European  Parliament  and  the 
Council  in  June  2003,  together  with  the  proposals  for  Council  Decisions  on 
ratification of the Stockholm Convention and the UNECE Protocol on POPs. 

2.9. 

Other progress 

2.9.1.  “Preparatory actions in the field of dioxins and PCBs” 

To obtain more specific information on dioxin and PCB sources and levels the 
Commission financed the study “Preparatory actions in the field of dioxins and 
PCBs”14. The final study report covers all EU Member States and was published 
in April 2002. A main focus of the project was the sampling and analysis of feed 
and  food  across  Europe.  It  provides  a  systematic  overview  of  dioxin  and  PCB 
contamination levels for different environmental compartments, feed and food, 
and closes existing data gaps in particular for dioxin-like PCBs. It also gives an 
overview of sources, pathways and human exposure. 

2.9.2.  Different  open  uses  of  PCBs  and  PCTs  in  products  and  determination  of 

best available techniques for the disposal of PCBs 

An  ongoing  study  is  designed  to  identify  products  containing  PCBs/PCTs  in 
open  uses,  together  with  applications,  typical  uses  and  further  useful 
information.  However,  identification  is  hampered  by  the  long  period  that  has 
elapsed  since  use  was  stopped,  the  confidentiality  of  the  preparations  and  the 
variety of applications. 

14 

See 6. 

11 

 
 
  
 
                                                 
2.9.3.  Emission limit values 

In its conclusions on the Dioxin Strategy the Council draws the attention to the 
possibilities  provided  by  Council  Directive  96/61/EC  of  24  September  1996 
concerning integrated pollution prevention and control (IPPC)15. That Directive 
provides that EU-wide emission limit values for dioxins should be established if 
the  need  is  identified.  In  its  Communication  on  implementation  of  the 
Directive16 the Commission makes the general point that limit values restrict the 
possibility  for  national  authorities  to  make  pragmatic  and  environmentally 
justified  trade-off  decisions  with  regard  to  local  circumstances.  EU-wide  limit 
values should therefore only be introduced if they are strictly necessary. 

The metal industry remains a major source of dioxin emissions. For this sector 
the Communication suggests as a first stage mandatory monitoring requirements 
as an alternative to emission limit values. This could be an effective regulatory 
tool  since  the  lack  of  data  on  emissions  in  this  sector  is  currently  a  serious 
impediment  to  appropriate  measures  being  taken.  The  Commission  has  started 
preparatory work on this initiative. 

In  the  autumn  of  2003,  the  Commission  received  from  Member  States  new 
information on representative emission limit values for dioxins and dioxin-like 
substances, which are applied in their country.  

2.9.4.  Water 

For  implementation  of  the  Water  Framework  Directive17,  and  in  particular 
Article 16 on strategies against water pollution, a first list of priority substances 
has been drawn up18. Progress is currently under way on defining environmental 
quality  standards  for  the  aquatic  environment  and  establishing  controls  on 
emissions, discharges and losses of substances. 

PCBs,  dioxins  and  furans  were  not  included  in  the  initial  list  of  priority 
substances,  on  the  grounds  that  they  were  considered  to  be  historic  pollutants 
and  that  existing  marketing  and  use  restrictions  under  Directive  76/769/EEC 
would give sufficient protection19. However, two ongoing studies undertaken to 
support  the  development  of  environmental  quality  standards  and  emission 
controls initially included these substances. 

15 
16 

17 

18 

19 

framework 

OJ L 25, 10.10.1996, p. 26. 
On the Road to Sustainable Production – Progress in implementing Council Directive 96/61/EC 
concerning integrated pollution prevention and control (COM(2003) 354 final). 
Directive  2000/60/EC  of  the  European  Parliament  and  of  the  Council  of  23  October  2000 
establishing  a 
field  of  water  policy. 
OJ L 327, 22.12.2000, p. 1.  
Decision No 2455/2001/EC of the European Parliament and of the Council of 20 November 2001 
establishing  the  list  of  priority  substances  in  the  field  of  water  policy  and  amending  Directive 
2000/60/EC. OJ L 331, 15.12.2001, p. 1. 
European  Commission.  “Study  on  the  Prioritisation  of  substances  dangerous  to  the  aquatic 
environment”, June 1999. ISBN 92-828-7981-X. Available at  
http://europa.eu.int/comm/environment/water/water-dangersub/pri_substances.htm 

for  Community  action 

the 

in 

12 

 
 
  
 
                                                 
According to article 16(4) of the Water Framework Directive, the list of priority 
substances has to be revised every four years. If new monitoring data on dioxins 
and  PCBs  reveal  that  there  are  still  risks  of  exposure  to  or  via  the  aquatic 
environment  in  EU  Member  States,  including  the  Acceding  and  Candidate 
Countries and/or that there are still significant point or diffuse sources connected 
with  the  aquatic  environment  where  emission  controls  are  insufficient,  the 
inclusion  of  these  substances  on  the  list  of  priority  substances  for  Community 
level  action  could  be  considered.  The  first  review  is  due  to  start  in  2004.  As 
regards  other  main  pollutants  of  concern  each  individual  Member  State  is 
required  under  the  Water  Framework  Directive  to  establish  quality  standards 
and  emission  controls  for  any  substance  that  is  identified  as  significant  in  that 
Member State. A first report on pressures and impacts is due in 2004 according 
to Article 5 of the Directive, and this report is expected to give an indication of 
which substances are relevant. PCBs, dioxins and furans could be identified in 
that process.  

2.9.5. 

Soil 

Soil  contamination  is  one  of  three  priority  threats  that  will  be  addressed  in  a 
Communication  from  the  Commission  to  be  adopted  by  mid-2004  in  the 
framework  of  the  Thematic  Strategy  on  Soil  Protection20.  Several  actions  are 
planned  to  improve  soil  protection  and  working  groups  have  been  set  up.  The 
full scope of the work has not yet been established, but some of these initiatives 
may tackle the monitoring and reduction of PCBs and dioxins in the soil and the 
treatment of contaminated sediments. 

2.9.6.  Emission factors 

The JRC has initiated the setting up of an Emission Factors Database, where one 
of the main goals will be to develop and make widely available country-/region-
specific emission factors for dioxins and furans. 

3. 

PROGRESS ACHIEVED WITH THE ACTIONS FOR FEED AND FOOD 

3.1. 

Integrated approach  

The Strategy describes an integrated approach to legislation on feedingstuffs and 
foodstuffs  to  reduce  the  presence  of  dioxins  and  PCBs  throughout  the  food 
chain. This integrated approach consists of three pillars: 

–  The  establishment  of  strict  but  feasible  maximum  levels  of  dioxins  in  feed 
and food taking into account the results obtained in lowering the presence of 
dioxins in the environment. 

–  The establishment of action levels to trigger action when levels of dioxin in 
feed  or  food  are  found  clearly  above  background  level.  These  action  levels 
have an early warning function. 

20 

COM(2002) 179 final. 

13 

 
 
  
 
                                                 
–  The establishment of target levels to be achieved over time so as to bring the 
exposure  of  the  majority  of  the  European  population  within  the  limits 
recommended by the Scientific Committee. 

3.1.1.  First pillar: maximum levels 

Maximum  levels  for  dioxins  in  feed  and  food  have  been  established  at  a  strict 
but  feasible  level  in  order  to  discard  the  unacceptably  highly  contaminated 
products. 

Council  Regulation  (EC)  No  2375/2001  of  29  November  2001  amending 
Commission Regulation (EC) No 466/2001 setting maximum levels for certain 
contaminants  in  foodstuffs21  establishes  maximum  levels  for  meat  and  meat 
products,  fish  and  fishery  products,  milk  and  milk  products,  hen  eggs  and  egg 
products,  and  oils  and  fats.  The  data  available  at  that  time  did  not  allow 
maximum  levels  to  be  laid  down  for  different  categories  of  fish  and  fishery 
products.  In  the  near  future  different  levels  are  to  be  set  for  the  various 
categories. 

Directive 2002/32/EC of the European Parliament and of the Council of 7 May 
2002  on  undesirable  substances  in  animal  feed,22  as  amended  by  Commission 
Directive  2003/57/EC  of  17  June  2003,23  establishes  maximum  levels  for 
dioxins in feed materials of plant origin, minerals, binders, animal fat, and other 
products  of  animal  origin,  fish  oil,  fish  meal,  and  compound  feedingstuffs, 
including fish feed. 

From  a  toxicological  point  of  view,  maximum  levels  for  dioxins  should  also 
include  dioxin-like  PCBs.  However,  as  data  on  the  occurrence  of  dioxin-like 
PCBs is still limited, an active approach is being pursued to obtain this data and 
to build up a reliable database in order to allow revision of the limits for dioxins 
in  feed  and  food  before  31  December  2004  to  include  dioxin-like  PCBs  in 
accordance with toxicological evaluation. 

Furthermore,  the  maximum  levels  for  dioxins  and  dioxin-like  PCBs  are  to  be 
further  reviewed  by  31  December  2006  at  the  latest  with  the  aim  of  setting 
substantially  stricter  maximum  levels,  in  line  with  the  lowering  of  dioxin 
emissions to the environment.  

3.1.2. 

Second pillar: action levels 

There  must  be  permanent  monitoring  of  the  presence  of  dioxins  and  PCBs  in 
feed  and  food  across  the  EU.  Whenever  there  is  an  abnormal  increase  in  the 
levels of these compounds, sources and/or pathways of contamination have to be 
identified. In order to determine what constitutes an abnormally increased level, 
action  levels  are  set  to  prompt  competent  authorities  and  operators  to  identify 
sources and pathways of contamination and to take measures to eliminate them. 

21 
22 
23 

OJ L 32, 6.12.2001, p. 5. 
OJ L140, 30.5.2002, p. 10. 
OJ L 151, 19.6.2003, p. 38. 

14 

 
 
  
 
 
                                                 
Action  levels  for  foodstuffs,  feed  materials  and  feedingstuffs  were  set  by 
Commission Recommendation 2002/201/EC of 4 March 2002 on the reduction 
of the presence of dioxins, furans and PCBs in feedingstuffs and foodstuffs.24 

Under  the  Recommendation,  the  Member  States,  in  proportion  to  their 
production, use and consumption of feed materials, feedingstuffs and foodstuffs, 
are  to  carry  out  random  monitoring  of  the  presence  of  dioxins  and  dioxin-like 
PCBs in feed materials, feedingstuffs and foodstuffs, including fish and fishery 
products.  This  monitoring  has  to  be  carried  out,  and  results  reported,  in 
accordance  with  the  specific  guidelines  and  frequency  established  by  a 
Commission  Recommendation  on  the  monitoring  of  background  levels  of 
dioxins and dioxin-like PCBs in foodstuffs and feedingstuffs. 

The  Recommendation  2002/201/EC  provides  that  Member  States  will  transmit 
every  year  a  report  by  31  December  for  foodstuffs  and  by  1  April  for 
feedingstuffs  on  their  findings,  the  results  of  their  investigations  and  the 
measures taken to reduce or eliminate the source of contamination. In case the 
information  is  of  immediate  relevance  for  the  other  Member  States  the 
information has to be transmitted immediately. This report will be for the first 
time provided for the controls performed in the year 2003. 

3.1.3.  Third pillar: target levels 

Target levels are the levels to be achieved in food and feed whereby it can be 
reasonably  assumed  that  the  dietary  exposure  of  a  large  majority  of  the 
European population will be within the tolerable weekly intake for dioxins and 
dioxin-like PCBs. These target values will be set by 31 December 2004 in the 
light of more accurate information on the impact of environmental measures on 
the  reduction  of  the  presence  of  dioxins  and  dioxin-like  PCBs  in  different 
feedingstuffs  and  foodstuffs,  including  fish  and  fishery  products.  Target  levels 
will  act  as  the  driving  force  for  the  measures  required  to  further  reduce 
emissions into the environment. 

3.2. 

Specific issues 

3.2.1.  Progress on dioxin-like PCBs 

Although  it  is  recognised  that  from  a  toxicological  point  of  view  any  levels 
should  apply  to  dioxins,  furans  and  dioxin-like  PCBs,  for  the  time  being 
maximum  levels  have  been  set  only  for  dioxins  and  furans.  These  maximum 
levels are laid down for food in Section 5 of Annex I of Commission Regulation 
(EC) 466/2001 and for feed in the Annex to Directive 2002/32. The Commission 
is  committed  to  reviewing  them  for  the  first  time  by  31  December  2004,  in 
particular  with  a  view  to  including  dioxin-like  PCBs.  To  this  effect,  the 
Commission has been collecting monitoring data from Member States following 
the guidelines laid down in a Commission Recommendation on the monitoring 
of  background  levels  of  dioxins  and  dioxin-like  PCBs  in  foodstuffs  and 
feedingstuffs.  Additional  data  has  also  been  submitted  to  the  Commission  by 

24 

OJ L 67, 9.3.2002, p. 69. 

15 

 
 
  
 
                                                 
Member  States  from  national  surveys  and  targeted  monitoring  outside  the 
the 
recommended  monitoring  strategy.  The  data  collected  will  allow 
Commission to start discussions with the competent authorities of the Member 
States  on  feasible  maximum  levels  of  dioxins,  furans  and  dioxin-like  PCBs, 
before the end of 2004. 

3.2.2.  Maximum limit for free-range and semi-intensive eggs 

As  there  have  been  cases  of  high  dioxin  levels  in  free-range  eggs,  it  was 
considered  appropriate  when  the  maximum  levels  were  adopted  to  allow  a 
transitional period for free-range and semi-intensive eggs before the maximum 
levels  apply.  The  legislation  provides  that  free-range  and  semi-intensive  eggs 
must comply with the maximum level laid down as from 1 January 2005. 

3.2.3.  Derogation for fish from the Baltic Sea region sold in Finland and Sweden 

By  way  of  derogation,  Sweden  and  Finland  are  authorised  for  a  transitional 
period  up  to  31  December  2006  to  place  on  the  market  fish  from  the  Baltic 
intended for consumption in their territory which have dioxin levels higher than 
those  set  in  the  legislation.  In  return  for  this  derogation,  Finland  and  Sweden 
have to undertake intensive monitoring of the levels of dioxins and PCBs in fish 
from  the  Baltic.  This  intensive  monitoring  provides  important  information  on 
factors  like  the  importance  of  the  age  of  fish  on  dioxin  levels  and  the 
distribution  of  dioxins  in  different  parts  of  the  fish.  The  Accession  Treaty, 
concluded in Copenhagen in December 2002, foresees for Estonia the possibility 
of derogation for fish from the Baltic under the same conditions as Finland and 
Sweden. 

3.2.4.  Target to reduce human exposure 

Under the legislation, the maximum levels are to be reviewed within a defined 
period  of  time  with  the  objective  of  reducing  them.  An  overall  reduction  of  at 
least  25%  in  human  exposure  to  dioxins  is  to  be  achieved  by  2006.  To  this 
effect, the Commission is continuing to work with Member States to collect data 
to allow the calculation of human exposure through diet to dioxins, furans and 
dioxin-like PCBs. 

3.2.5.  Progress on non-dioxin-like PCBs 

At  the  beginning  of  2002  the  Commission  asked  the  Scientific  Committee  for 
Food  to  provide  a  scientific  opinion  on  the  risks  to  consumers  of  dietary 
exposure  to  non-dioxin-like  PCBs.  Given  the  complexity  of  the  issue  the 
Commission, the WHO, and the US Environmental Protection Agency agreed to 
combine forces to avoid duplication of effort in performing risk assessments on 
non-dioxin-like  PCBs.  Since  the  European  Food  Safety  Authority  (EFSA) 
became operational in May 2003, it has responsibility for addressing the request 
of  a  scientific  opinion  on  this  issue,  through  its  Panel  of  Experts  on 
Contaminants. The Commission renewed its request for a scientific opinion on 
non-dioxin-like  PCBs  in  November  2003  especially  in  view  of  including  the 

16 

 
 
  
 
assessment of the potential risks for animal and public health of the presence of 
non-dioxin-like PCBs in feedingstuffs. The Panel has set up a specific working 
group  to  assess  non-dioxin-like  PCBs,  which  will  operate  in  parallel  but  co-
ordinated  with  the  international  working  group.  A  scientific  opinion  has  to  be 
delivered by the end of 2004. 

The  Commission  has  in  the  meantime  discussed  with  the  Member  States  the 
need to set provisional maximum limits for non-dioxin-like PCBs until the risk 
assessment has been completed. The Member States expressed the opinion that 
the setting of maximum limits without a risk assessment would be premature, so 
the  discussions  will  be  resumed  once  the  risk  assessment  becomes  available 
from EFSA. 

4. 

SUMMARY 

The  first  two  years  of  the  ten-year  Community  Strategy  for  reducing  the 
presence  of  dioxins,  furans  and  PCBs  in  the  environment,  feed  and  food  have 
been spent on a number of implementation activities, with priority given to those 
stressed in the Council Conclusions. 

The  activities  include  in  particular  projects  aimed  at  improving  knowledge  of 
the  current  situation  in  the  Acceding  and  Candidate  Countries  with  the 
secondary objective of strengthening capacity in these countries, for example by 
establishing  networks  and  training  experts.  Through  these  projects  it  has  been 
found that small but numerous diffuse sources, mainly in the residential sector 
have a considerably greater potential for dioxin emissions than in the EU. This 
is due  to the widespread use of  solid fuels, and possibly to  the co-incineration 
and open burning of waste. These activities will probably be recognised in the 
future as dominant dioxin sources in the Acceding and Candidate Countries. 

In  its  conclusions  the  Council  underlines  the  importance  of  the  Stockholm 
Convention  and  the  UNECE  Protocol  on  POPs.  These  agreements  have  been 
signed by the European Community but not yet ratified. They aim to eliminate 
certain  POPs,  inter  alia  dioxins,  furans  and  PCBs.  To  enable  ratification  the 
Commission  has  proposed  a  Regulation  on  persistent  organic  pollutants  to 
implement the obligations of the two international instruments. 

With  the  long-term  objective  of  developing  an  integrated  approach  to  the 
monitoring  of  the  environment,  food  and  human  health,  a  pilot  project  on 
integrated environment and health monitoring of dioxin and PCBs in the Baltic 
region will be launched. A working group has been set up to assess the current 
monitoring situation and to give recommendations. 

Other  implementation  activities  include  continuing  work  on  best  available 
techniques  reference  documents  and  research  on  for  example  dioxin  risk 
assessment and dioxins in waste. 

On feed and food the Commission has already undertaken several initiatives like 
establishing  maximum  levels  and  action  levels  for  dioxins  and  furans  in  feed 
and food, and setting up feed and food monitoring programmes. Before the end 

17 

 
 
  
 
of 2004, dioxin-like PCBs are to be included and target levels set. By the end of 
2006,  the  maximum  levels  for  dioxins,  furans  and  dioxin-like  PCBs  are  to  be 
significantly reduced. A risk assessment on non-dioxin-like PCBs addressing the 
potential risks of these substances in feed and food for animal and public health 
is  expected  to  become  available  by  the  end  of  2004.  On  the  basis  of  this 
assessment,  the  Commission  will  consider  the  appropriateness  of  measures  to 
reduce the presence of non-dioxin-like PCBs in feed and food. 

A workshop to evaluate the scientific information contained in the inventory on 
rapid screening methods for dioxins and related compounds, and to identify the 
research needs, was organised in December 2003. 

5. 

NEXT STEPS 

The  year  2004  will  be  dedicated  to  the  continuation  of  the  ongoing  Acceding 
the  project 
and  Candidate  Countries  projects.  The 
“Environmental  levels  and  human  exposure  in  the  Acceding  and  Candidate 
Countries” is due in February 2004 and the final report on the project “Dioxin 
Emissions in Acceding and Candidate Countries” is due by the end of that year. 
Research into the contribution of solid fuel burning to dioxin emissions started 
by the end of 2003 and will continue in 2004. 

report  on 

final 

A workshop is being planned for 2004 to prepare an awareness rising campaign 
on  bad  practices,  like  the  open  burning  of  waste  and  the  use  of  waste  as  a 
combustion  material.  Competent  authorities  from  the  Acceding  and  Candidate 
Countries and from the present Member States will be invited to participate. 

To fill remaining gaps new project proposals are now being evaluated, including 
in  particular  the  third  stage  of  the  project  on  human  exposure  to  dioxins  in 
recycled  waste  and  a  programme  on  long-term  monitoring  using  selected 
indicators elaborated by the JRC. 

The technical working group on integrated environment and health monitoring 
of dioxin and PCBs in the Baltic area will deliver its final results by the end of 
March  2004  in  the  form  of  options  for  action  and  recommendations  for  the 
Commission’s Environment and Health Action Plan 2004-2010. 

As  regards  the  metal  production  and  processing  sector,  which  has  been 
identified as a major source of dioxin emissions, a project is being prepared to 
supply  background  information  for  a  possible  Commission  proposal  laying 
down EU requirements for emission monitoring. 

Depending  on  new  data  becoming  available  on  the  extent  of  pollution  of  the 
aquatic  environment  and  current  sources  of  pollution,  the  Commission  might 
propose  including  dioxins  and  PCBs,  in  order  that  they  be  more  closely 
monitored,  in  the  list  of  priority  substances  under  the  Water  Framework 
Directive if EU level relevance is established. 

18 

 
 
  
 
In 2004, the current maximum levels and action levels for dioxins and furans in 
feed and food will be reviewed to include dioxin-like PCBs. A risk assessment 
on the potential risks for animal and public health of the presence of non-dioxin-
like PCBs in feed and food is currently ongoing and is expected to be completed 
by  the  end  of  2004.  Measures  to  reduce  the  presence  of  non-dioxin-like  PCBs 
will be considered afterwards, in the light of this assessment. 

19