Communication from the Commission to the Council and the European Parliament -  Thematic Strategy on air pollution {SEC(2005) 1132} {SEC(2005) 1133}
Date: 2005-09-21
Institutions: European Commission
Subjects: EU programme, air quality, atmospheric pollutant, energy policy, environmental law, environmental protection, health policy, pollution control measures, reduction of gas emissions, transport policy

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 21.9.2005 
COM(2005) 446 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

Thematic Strategy on air pollution 

{SEC(2005) 1132} 
{SEC(2005) 1133} 

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COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

Thematic Strategy on air pollution 

(Text with EEA relevance) 

1. 

INTRODUCTION 

Air  pollution  damages  human  health  and  the  environment.  The  need  to  deliver 
cleaner air has been recognised for several decades with action having been taken at 
national  and  EU  level  and  also  through  active  participation  in  international 
conventions1. EU action has focused on establishing minimum quality standards for 
ambient air and tackling the problems of acid rain and ground level ozone. Polluting 
emissions from large combustion plant and mobile sources have been reduced; fuel 
quality  improved  and  environmental  protection  requirements  integrated  into  the 
transport and energy sectors. 

Despite significant improvements, serious air pollution impacts persist. Against this 
backdrop,  the  Community’s  Sixth  Environmental  Action  Programme  (6th  EAP) 
called for the development of a thematic strategy on air pollution with the objective 
to attain “levels of air quality that do not give rise to significant negative impacts on, 
and risks to human health and the environment”2. Following its communication on 
the  Clean  Air  For  Europe  programme  (CAFE)3,  the  Commission  has  examined 
whether  current  legislation  is  sufficient  to  achieve  the  6th  EAP  objectives  by  2020. 
This analysis looked at future emissions and impacts on health and the environment 
and  has  used  the  best  available  scientific  and  health  information.  It  showed  that 
significant  negative  impacts  will  persist  even  with  effective  implementation  of 
current legislation. 

Accordingly, this thematic strategy on air pollution (the Strategy) establishes interim 
objectives  for  air  pollution  in  the  EU  and  proposes  appropriate  measures  for 
achieving  them.  It  recommends  that  current  legislation  be  modernised,  be  better 
focused  on  the  most  serious  pollutants  and  that  more  is  done  to  integrate 
environmental concerns into other policies and programmes. 

2. 

ASSESSMENT OF THE PRESENT SITUATION 

Air pollution is both a local and a trans-boundary problem caused by the emission of 
certain pollutants  which  either alone, or through chemical reaction lead to negative 
environmental and health impacts. 

1 
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3 

E.g. Convention on Long-range Transboundary Air Pollution (CLRTAP). 
Decision 1600/2002/EC - OJ L242, 10.9.2002, p.1. 
COM(2001) 245. 

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In relation to health, ground level ozone and particulate matter (“fine dust”) are the 
pollutants of most concern. Exposure can lead to impacts ranging from minor effects 
on the respiratory system to premature mortality (see Annex 2). Ozone is not emitted 
directly  but  is  formed  through  the  reaction  of  volatile  organic  compounds  (VOCs) 
and  nitrogen  oxides  (NOx)  in  the  presence  of  sunlight.  Particulate  matter  can  be 
emitted  directly  to  the  air  (so  called  primary  particles)  or  be  formed  in  the 
atmosphere  as  “secondary  particles”  from  gases  such  as  sulphur  dioxide  (SO2), 
nitrogen oxides and ammonia (NH3). 

Ecosystems  are  also  damaged  by  (1)  the  deposition  of  the  acidifying  substances  – 
nitrogen  oxides,  sulphur  dioxide  and  ammonia  –  which  lead  to  loss  of  flora  and 
fauna; (2) excess nutrient nitrogen in the form of ammonia and nitrogen oxides can 
disrupt  plant  communities,  leach  into  freshwaters  leading  in  each  case  to  a  loss  of 
biodiversity  (called  “eutrophication”);  and  (3)  ground  level  ozone  that  results  in 
physical  damage  and  reduced  growth  of  agricultural  crops,  forests  and  plants.  Air 
pollution also causes damage to materials leading to a deterioration of buildings and 
monuments. 

Significant  progress  has  already  been  made  in  reducing  the  main  air  pollutants. 
Figure  1  shows  the  reductions  since  1990  in  the  emissions  of  nitrogen  oxides, 
sulphur  dioxide,  volatile  organic  compounds  and  ammonia  delivered  by  current 
policies. 

These  reductions  have  had  positive  impacts,  although  two  thirds  of  the  lakes  and 
streams surveyed in Scandinavia are still at risk from acid deposition and some 55% 
of all EU ecosystems suffer from eutrophication. Even with the full implementation 
of existing laws, environment and health problems will persist in 2020 if no further 
action  is  taken.  While,  compared  to  a  baseline  situation  of  2000,  there  will  be  a 
reduction of around 44% in the area of ecosystems receiving excess acid deposition 
the  current  data  suggests  only  a  14%  reduction  in  areas  affected  by  eutrophication 
due to only modest reductions in ammonia emissions. However, the projections were 
not  able  to  include  potential  ammonia  emission  reductions  following  the  reform  of 
the  Common  Agricultural  Policy4  and  other  recent  measures.  The  area  of  forest 
affected by excessive levels of ozone will only fall by 14%. 

Concerning  health  impacts,  currently  in  the  EU  there  is  a  loss  in  statistical  life 
expectancy of over 8 months due to PM2.5 in air, equivalent to 3.6 million life years 
lost  annually.  Figure 2  shows  that  even  with  effective  implementation  of  current 
policies  this  will  reduce  only  to  around  5.5  months  (equivalent  to  2.5  million  life 
years lost or 272,000 premature deaths). For ozone there are estimated to be around 
21,000 cases of hastened mortality in 2020. This has severe consequences for quality 
of life. Children, the elderly as well as citizens suffering asthma and cardiovascular 
diseases are particularly vulnerable. In monetary terms, the damage to human health 
alone is estimated at between €189 - 609 billion per annum in 2020. In view of these 
costs, taking no further action is not an option. 

4 

The  very  preliminary  estimated  effect  of  the  2003  CAP  reform,  due  to  the  expected  reduction  in 
livestock numbers only, is around a 5 to 6% reduction of ammonia emissions compared to the baseline 
in 2000. This estimation does not consider the positive impact of the expected reduced use of mineral 
nitrogen fertilisers. 

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3. 

OBJECTIVES OF ‘THE STRATEGY’  

Achieving  the  6th  EAP  objectives  of  “levels  of  air  quality  that  do  not  give  rise  to 
significant  negative  impacts  on,  and  risks  to  human  health  and  the  environment” 
means,  for  the  natural  environment,  no  exceedence  of  critical  loads  and  levels.  For 
human  health,  the  situation  is  more  complex  as  there  is  no  known  safe  level  of 
exposure  for  some  pollutants  such  as  particulate  matter  and  ground  level  ozone. 
There  is  strong  health  evidence,  however,  that  measures  taken  to  reduce  these 
pollutants will have beneficial effects for the EU population. 

Figure 1. EU-25 land-based emissions of NECD pollutants 

25000

20000

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e
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t
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15000

10000

5000

0

SO2

NOx

VOCs

NH3

1990

2000

2010

2020

Figure 2. Effects of Particles on mortality in 2000 & 2020 (current policies)

Improvement by 2020:
- 1.1 million life years lost
- 76,000 premature mortalities
- 2.5 months statistical loss of life

   Remaining problem in 2020:
 - 2.5 million life years lost
- 272,000 premature mortalities
- 5.5 months statistical loss of life

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Various  scenarios  for  meeting  these  strategic  objectives  have  been  analysed  in  the 
impact  assessment5  ranging  from  taking  no  further  action  to  the  application  of  all 
technically  feasible  measures.  Even  if  all  such  technical  measures  were  applied 
irrespective  of  cost,  it  still  would  not  be  possible  to  meet  the  ambitious  6th  EAP 
objectives.  Therefore,  a  policy  choice  has  to  be  made  on  the  level  of  health  and 
environmental  protection  that  can  be  achieved  by  2020,  taking  into  account  the 
associated benefits and costs. Extensive analysis was done to determine the costs and 
benefits of different levels of ambition with a view to finding the most cost-effective 
level  consistent  with  the  Community’s  Lisbon  and  sustainable  development 
strategies.  The  analysis  and  the  different  scenarios  are  described  in  detail  in  the 
Impact Assessment accompanying this Communication. 

The  chosen  strategy  sets  health  and  environmental  objectives  (Annex 3)  and 
emission reduction targets for the main pollutants. These objectives will be delivered 
in stages. By setting objectives to be attained by 2020, EU citizens will be protected 
from exposure to particulate matter and ozone in air and European ecosystems will 
be better protected from acid rain, excess nutrient nitrogen and ozone. This implies 
that the concentration of PM2.5 would be reduced by 75% and ground level ozone by 
60% from what is technically feasible by 2020. In addition, the threat to the natural 
environment from both acidification and eutrophication will be reduced by 55% from 
what is technically possible.  

To  achieve  these  objectives,  SO2  emissions  will  need  to  decrease  by  82%,  NOx 
emissions  by  60%,  VOCs  by  51%,  ammonia  by  27%  and  primary  PM2.5  by  59% 
relative  to  emissions  in  2000.  A  large  part  of  these  emissions  reductions  will  be 
delivered  by  measures  already  adopted  and  implemented  in  the  Member  States. 
These reductions are estimated to save about 1.71 million life years from exposure to 
particulate  matter  and  reduce  acute  mortalities  from  exposure  to  ozone  by  2,200 
relative to the position in 2000. They will also significantly reduce the environmental 
damage  done  to  forests,  lakes  and  streams  and  biodiversity  by  acid  rain  and  better 
protect European ecosystems from atmospheric inputs of nutrient nitrogen. 

Part of the strategy will be implemented through a revision of the current ambient air 
quality legislation comprising two main elements: 

(a) 

(b) 

streamlining of existing provisions and merging five legal instruments 
into a single directive; 

the introduction of new air quality standards for fine particulate matter 
(PM2.5) in air. 

The  national  emission  ceilings  directive  (NECD)6  will  also  be  revised  to  ensure 
reduced emissions of nitrogen oxides, sulphur dioxide, volatile organic compounds, 
ammonia  and  primary  particulate  matter  consistent  with  the  interim  objectives 
proposed for 2020. 

The level of ambition chosen for this Strategy has been estimated to deliver at least 
€42  billion  per  annum  in  health  benefits.  These  benefits  include  fewer  premature 

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SEC(2005) 1133. 
Directive 2001/81/EC - OJ L 309, 27.11.2001, p. 22. 

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deaths,  less  sickness,  fewer  hospital  admissions,  improved  labour  productivity  etc. 
Although there is no agreed way to monetize ecosystem damage, the environmental 
benefits of reduced air pollution will also be significant in terms of reduced risks and 
reduced  areas  of  ecosystems  that  may  be  damaged  by  acidification,  eutrophication 
and  ozone.  Previously  damaged  ecosystems  will  also  recover  more  quickly.  In 
addition,  damage  to  buildings  and  materials  will  also  be  reduced.  Similarly,  for 
agricultural crops the damage is reduced by around €0.3 billion per annum. 

Attainment of these targets is estimated to cost approximately €7.1 billion per annum 
(representing  about  0.05%  of  the  EU-25  GDP  in  2020).  No  net  change  in 
employment is expected. Production lost through ill health would be reduced and low 
income  groups  generally  exposed  to  the  highest  levels  of  air  pollution  may  benefit 
most. 

Environmental standards can be a catalyst for business growth and innovation. The 
EU can gain competitive advantages and exploit opportunities by focusing research 
and  development  on  resource-efficient  and  less  polluting  technologies  that  other 
countries  will  eventually  need  to  adopt.  Developed  countries,  like  the  USA  and 
Japan, already have similar air pollution policies in place such as the new Clean Air 
Interstate  Rule  in  the  US.  It  is  also  clear  that  developing  countries  like  China  and 
Korea are also increasingly concerned about air pollution, are taking positive steps to 
limit emissions and are looking for policy and technical inspiration from Europe. 

4. 

ACTIONS AND MEANS 

In  order  to  attain  these  strategic  objectives,  current  air  quality  legislation  will  be 
simplified and other legislation revised where appropriate. Further initiatives will be 
taken on new vehicles and, subject to careful impact assessment, new measures may 
be envisaged for small combustion plants, ships and aircraft emissions. Community 
structural funds, international cooperation, improved implementation and selection of 
appropriate instruments will all form part of the suggested policy mix. 

4.1.  Making environment legislation work better 

This  Strategy  assumes  that  current  legislation  is  implemented  effectively.  To  this 
end,  and  with  a  view  to  making  “Better  Regulation”  the  Commission  proposes  to 
streamline current legislation on air quality to lighten the administrative burden and 
to enable Member States to overcome difficulties experienced in complying with the 
current rules. The Commission will also work towards improving the consistency of 
air  quality  assessments,  disseminate  best  practice  and  build  on  its  constructive 
dialogue with Member States. 

4.1.1. 

Simplification of air quality legislation 

A  legislative  proposal  is  attached  to  this  Strategy  which  combines  the  Framework 
Directive7, the First8, Second9 and Third10 Daughter Directives and the Exchange of 

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9 

Directive 96/62/EC - OJ L 296, 21.11.1996, p. 55. 
Directive 1999/30/EC - OJ L 163, 29.6.1999, p. 41. 
Directive 2000/69/EC - OJ L 313, 13.12.2000, p. 12. 

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Information  Decision11.  The  recently  adopted  Fourth  Daughter  Directive12  will  be 
merged later through a simplified “codification” process. The proposal clarifies and 
simplifies,  repeals  obsolete  provisions,  modernises  reporting  requirements  and 
introduces new provisions on fine particulates. 

Strengthening implementation 

Under  the  Framework  Directive  and  daughter  directives,  air  quality  limit  values 
apply throughout the territory of the Member States. Experience has shown that there 
are  zones  suffering  from  acute  and  exceptional  problems.  Therefore,  as  part  of  the 
new  proposal  and  where  Member  States  can  demonstrate  that  they  have  taken  all 
reasonable  measures  to  implement  this  legislation,  it  is  proposed  to  allow  them  to 
request an extension to the deadline for compliance in affected zones if strict criteria 
are met and plans are in place to move towards compliance. 

Modernising monitoring and reporting  

Member  States  monitor  air  quality  at  around  3,000  locations  and  routinely 
disseminate this information to the public and the Commission. The Commission, in 
cooperation with the European Environment Agency, proposes to move to a system 
of  electronic  reporting  based  on  a  shared  information  system  using  the  INSPIRE 
framework  for  spatial  data  reporting13.  This  approach  will  cut  red  tape,  reduce 
compliance  reporting,  streamline  information  flows  and  improve  public  access  to 
information. 

Control of human exposure to PM2.5 in ambient air 

Evidence  shows  that  fine  particles  (PM2.5)  are  more  hazardous  than  larger  ones, 
although  the  coarse  fraction  (particles  in  the  range  of  2.5  to  10 µm  in  diameter) 
cannot be ignored. Thus, in addition to the existing controls on PM10, there is a need 
to cap unduly high risks from exposure to PM2.5 and to reduce the general exposure 
of citizens everywhere. A cap of 25 µg/m3 is proposed which is unlikely to impose 
additional burdens except in the most polluted areas of the EU. The level chosen for 
the cap takes account of the inherent uncertainties in our current knowledge about the 
risks of PM2.5. It is also proposed that Member States undertake more comprehensive 
monitoring  of  ambient  levels  of  PM2.5  in  urban  areas  as  a  first  step  in  reducing 
average urban concentrations throughout their territory. A uniform interim reduction 
target  of  20%  is  proposed  for  all  Member  States  to  be  attained  between  2010  and 
2020.  It  is  foreseen  that  this  target  will  be  reviewed  when  more  air  quality 
monitoring information is available. This review will address, in particular, the issues 
of  introducing  differentiated  targets  for  the  individual  Member  States  according  to 
their prevailing air pollution climate and whether these targets should become legally 
binding. 

10 
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13 

Directive 2002/3/EC - OJ L 67, 9.3.2002, p.14. 
Decision 97/101/EC - OJ L 35, 5.2.1997, p. 14. 
Directive 2004/107/EC - OJ L 23, 26.1.2005, p. 3. 
COM(2004) 516, 23.7.2004. 

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4.1.2.  Revision of the NECD 

The  Commission  will  review  the  national  emissions  ceilings  directive  in  2006  and 
propose revised emission ceilings that will be based upon the scenario set out in this 
Strategy.  The  proposal  will  be  subject  to  a  detailed  impact  assessment  and  will 
respect  the  need  for  an  integrated  approach  to  nitrogen  management  (see  section 
4.2.3).  Also,  simplified  implementation  and  reporting  provisions  and  targets  for 
primary  particulates  will  be  considered.  No  further  change  is  foreseen  for 
combustion  plants  greater  than  50  MWth  beyond  the  current  directives  on  large 
combustion  plants14  and  integrated  pollution  prevention  and  control  (IPPC)15. 
However, options to streamline existing legislation covering industrial emissions will 
be examined. 

4.1.3.  Coherence with other environment policies 

The  Strategy  is  consistent  with  climate  change  policies  and  will  help  meet 
commitments  to  halt  the  loss  of  biodiversity  and  support  its  longer-term  recovery. 
Measures outlined in this Strategy will also deliver progress towards the objectives 
of  the  Community’s  mercury  strategy16  by  reducing  combustion-related  mercury 
emissions, the Water Framework Directive and the forthcoming thematic strategy on 
the marine environment. 

Monitoring of soil, water quality and biodiversity will feed into the evaluation of air 
pollution policies as all are affected by acidification and nutrient nitrogen. Similarly, 
air quality monitoring and reporting will support the Health & Environment Action 
Plan.  

4.2. 

Integrating air quality concerns into other policy areas 

Meeting the targets set out in this Strategy will require efforts and commitments by 
other sectors. 

4.2.1.  Energy 

More efficient use of energy and better use of natural resources can all help to reduce 
harmful  emissions.  The EU  has set itself the indicative target of producing 12% of 
energy  and  21%  of  electricity  from  renewable  energy  sources  by  2010.  It  has  also 
adopted minimum targets for the share of biofuels and proposed safety measures in 
the field of nuclear energy. Several actions have been taken to curb energy demand 
including  energy  labelling,  energy  performance  of  buildings,  a  directive  on 
cogeneration  and  a  directive  related  to  eco-design  requirements  for  energy-using 
products. The Green Paper on energy efficiency also explores ways to make further 
progress in this area17. 

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Directive 2001/80/EC - OJ L 309, 27.11.2001, p. 1. A review pursuant to Article 4(7) of this directive 
has been performed. See http://europa.eu.int/comm/environment/air/future_stationary.htm.  
Directive 96/61/EC - OJ L 257, 10.10.1996, p. 26. 
COM(2005) 20. 
COM(2005) 265. 

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4.2.1.1.  Smaller combustion plants 

This  increasingly  important  emissions  source  is  not  regulated  at  Community  level. 
The  Commission  will  examine  whether  the  IPPC  directive  should  be  expanded  to 
cover  sources  below  50 MWth.  Harmonised  technical  standards  will  also  be 
developed  for  domestic  combustion  appliances  and  their  fuels.  If  feasible,  smaller 
residential and commercial buildings could be included in an extended directive on 
energy efficiency18. 

4.2.1.2.  VOC emissions at fuel stations 

Given the role of volatile organic compounds in the formation of ground level ozone, 
the  Commission  will  examine  the  scope  further  to  reduce  VOC  emissions  at  petrol 
filling stations.  

4.2.2.  Transport 

In keeping with the commitments made in the White Paper on a common transport 
policy19, the Commission will further encourage shifts towards less polluting modes 
of  transport,  alternative  fuels,  reduced  congestion  and  the  internalisation  of 
externalities  into  transport  costs.  With  regard  to  infrastructure  charging,  the 
Commission  has  already  made  proposals  regarding  charges  for  the  use  of  road 
infrastructure applicable to heavy vehicles (Eurovignette) and a common framework 
for all modes will be examined in due course. Other possible measures are presented 
below and these could be complemented by others when the White Paper is reviewed 
in 2005. 

4.2.2.1.  Land transport  

Initiatives have been taken to revitalise and integrate European railway systems. This 
is supported by the guidelines for the Trans-European transport networks adopted in 
2004  which  will  give  priority  to  environmentally  friendly  modes  including  rail. 
Furthermore,  intermodal  freight  transport  will  be  promoted  via  the  “Marco  Polo” 
programme  and  transport  efficiency  improved  by  the  European  satellite  radio 
navigation programme GALILEO.  

A  proposal  to  reduce  emissions  of  new  passenger  cars  and  vans  will  be  adopted  in 
2005 (EURO V). The Commission will also come forward with a proposal to tighten 
further the emissions from heavy duty vehicles. In the longer term, the Commission 
will  also  investigate  the  feasibility  of  improving  the  type  approval  process  so  that 
test-cycle emissions better reflect real world driving.  

The Commission will also be considering other measures such as: 

•  practical guidelines for differentiated charging according to air pollution damage 

and impacts in environmentally sensitive areas; 

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19 

Directive 2002/91/EC - OJ L 1, 4.1.2003, p. 65. 
COM(2001) 370, 12.9.2001. 

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•  obligations  and  recommendations  on  public  authorities  to  implement  minimum 

annual procurement quotas of new cleaner and energy efficient vehicles; 

•  establishing a common framework for designating low-emission zones. 

Older  road  vehicles  cause  disproportionate  levels  of  pollution.  Therefore,  Member 
States should consider targeted retrofitting and scrapping schemes when drawing up 
plans to meet air quality objectives. 

In its thematic strategy on the urban environment, the Commission is exploring how 
best  to  help  Member  States  and  local  authorities  devise  and  implement  sustainable 
urban  transport  plans  which  combine  public  transport  improvements  with  transport 
demand  management  in  order  to  ensure  a  fair contribution of transport activities to 
the achievement of air quality, noise and climate change objectives. 

4.2.2.2.  Aviation 

Measures  with  potential  synergies  between  climate  change  and  air  quality  will  be 
discussed  in  a  forthcoming  Communication  on  the  use  of  economic  instruments  to 
reduce the climate change impact of aircraft. 

4.2.2.3.  Shipping  

Air pollutant emissions of SO2 and NOx from ships are a serious concern, as they are 
expected  to  exceed  those  of  all  land-based  sources  in  the  EU  by  2020.  They  are 
regulated by Annex VI of the IMO’s Marine Pollution Convention and all Member 
States which have not yet ratified Annex VI should do so at the earliest opportunity. 

The Commission has developed an EU strategy on ship emissions and a directive on 
sulphur  in  marine  fuel20  has  been  agreed.  However,  more  must  be  done  and  the 
Commissions intends to: 

•  submit  to  the  Council  a  recommendation  for  a  decision  authorising  the 
Commission to negotiate within the framework of the IMO to strengthen current 
air emission standards; the Commission intends to consider a proposal for tighter 
NOx  standards  by  the  end  of  2006  if  the  IMO  has  not  made  any  proposals  for 
tighter standards by that date; 

•  promote shore-side electricity for ships in port (preferably from renewable energy 

sources) by developing guidelines and considering energy tax exemptions; 

•  ensure  that  low-emission  operation  is  effectively  applied  as  a  criterion  for  EU 

funding programmes, including Marco Polo and Motorways of the Sea. 

4.2.3.  Agriculture 

Cattle farming, the pig and poultry sectors and the use of mineral fertilisers account 
for  the  vast  majority  of  ammonia  emissions.  Recent  reform  of  the  Common 
Agricultural  Policy  should  bring  about  a  reduction  in  ammonia  emissions  from 

20 

COM(2002) 595. 

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agricultural sources following: (1) the removal of the link between financial support 
and  the  obligation  to  retain  specific  animal  numbers;  (2)  the  removal  of  incentives 
towards intensification which will result in a reduction of mineral fertiliser use; and 
(3) the introduction of obligatory cross compliance with environmental directives as 
a  condition  for  the  full  granting  of  direct  payments.  Further  improvements  are  also 
expected  to  result  from  an  effective  implementation  of  certain  environmental 
Directives,  such  as  the  Nitrates  Directive,  the  IPPC  Directive,  the  Environmental 
Impact Assessment Directive and the Water Framework Directive. 

However,  these  improvements  could  be  insufficient  to  meet  the  objectives  of  the 
Strategy.  Given  that  nitrogen  plays  a  role  in  several  environmental  problems,  the 
Commission  will  pursue  a  coherent  and 
to  nitrogen 
management21.  Priority  will  be  attached  to  measures  and  policies  to  reduce 
“excessive” nitrogen use in agriculture and which simultaneously address nitrates in 
water, and ammonia and nitrous oxide emissions to air. Such policies could address 
(1) the nitrogen content of animal feedstuffs; (2) excessive use of nitrogen fertilisers; 
and  (3)  the  promotion  of  further  research  into  the  nitrogen  cycle  and  its 
environmental implications.  

integrated  approach 

In order to comply with existing and new emissions ceilings for ammonia when the 
NECD is revised, the Member States will have to prepare plans and programmes to 
demonstrate  how  they  will  meet  these  new  ceilings.  The  achievement  of  reduction 
objectives  may  require  the  development  of  national  actions  plans,  including 
obligations  applicable  at  farm  level,  allowing  emissions  reductions  to  be  phased  in 
over a ten year period or so following the adoption of a revised NECD. 

The current Rural Development Regulation and the Commission proposals for rural 
development  for  2007-2013  provide  several  possibilities  to  tackle  ammonia 
emissions  from  agricultural  sources.  These  include  measures  related  to  farm 
modernisation, meeting standards and agri-environment. The Commission urges the 
Member States to make full use of these measures. In particular, Member States can 
design  agri-environment  schemes  which  go  beyond  environmental  legislative 
obligations  and  minimum  requirements  for  fertiliser  use  identified  in  rural 
development  programmes.  These  could  also  help  towards  a  more  effective 
compliance with the CLRTAP code of good farming practice22. 

4.2.4. 

Structural Funds 

Structural Funds are co-financing many measures in the Member States and regions 
that contribute to improved air quality. The Commission’s proposal for the reform of 
cohesion policy for 2007-201323 includes proposals that will help meet the objectives 
of this Strategy. For example, support for sustainable transport systems, sustainable 
and  cleaner  energy  supplies,  and  the  rehabilitation  and  reuse  of  derelict  land. 
Environment protection is included in the three proposed Objectives of Convergence, 
Competitiveness  and  Employment  and  Territorial  Co-operation.  Under  the  first, 
which is addressed to less favoured regions and countries, air quality is mentioned in 

21 

22 
23 

Consistent  with  the  Declaration  of  the  3rd  International  nitrogen  conference,  October  2004,  Nanjing 
China. 
Required by Annex IX of the CLRTAP Gothenburg Protocol. 
COM(2004) 492.  

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the  proposal  for  a  Regulation  on  the  European  Regional  Development  Fund 
(ERDF)24.  Ensuring  full  exploitation  of  eco-innovations  and  technologies  and  the 
introduction  of  environmental  management  systems  in  SMEs  is  also  a  priority  for 
future cohesion policy. 

4.2.5. 

International dimension 

As  the  regional  and  global  background  contribution  to  European  air  pollution  is 
growing,  the  Community  must  work  on  building an international consensus  around 
the  importance  of  hemispheric  pollution.  The  Commission,  in  cooperation  with  the 
Member  States,  will  lead  a  new  task  force  on  hemispheric  air  pollution  within  the 
CLRTAP jointly with the USA. The Commission is also stepping up its cooperation 
with China on air pollution. The EU will also continue to support the Convention’s 
scientific and monitoring activities. 

5. 

NEXT STEPS  

5.1. 

Evaluation, review & research 

This Strategy will be reviewed in 2010 and this will feed into the final evaluation of 
the 6th EAP. Ongoing assessment of policies will continue using existing indicators 
and  reported  information.  Assessment  work  will  be  increased  in  readiness  for  the 
review. 

The  analysis  underpinning  this  Strategy  builds  upon  Community  research  on  air 
pollution, including the health impacts of particles, performed under the various RTD 
Framework  Programmes25.  The  Strategy  also  builds  on  economic-environmental 
models and tools developed using Community RTD funds26.  

In the coming years more research will be required on emission sources, atmospheric 
chemistry and pollutant dispersion and on the effects of air pollution on health and 
the environment including long term European epidemiological studies. We will also 
need  to  improve  the  monetary  evaluation  of  ecosystem  impacts  and  the  analysis  of 
costs and effectiveness of measures actually implemented. This will require EU RTD 
funding,  work  by  the  Joint  Research  Centre  of  the  European  Commission,  and  the 
support of the Member States.  

5.2. 

Consultative arrangements 

There were over one hundred stakeholder meetings during the CAFE programme and 
a two-month web-based public consultation on the Strategy. Of the 11,578 responses 
received  over  10,000  were  from  private  individuals.  Respondents  indicated  a  clear 
need for better public information, a greater desire for protection from air pollution 
and a willingness to pay for reduced risks on a par with those for drinking water. 

24 
25 
26 

COM(2004) 495, Article 4. 
CLEAR cluster (http://www.nilu.no/clear/); INTEGAIRE thematic network (http://www.integaire.org/) 
Health  valuation  from  ExternE  and  NewExt  projects;  macroeconomic  analysis  used  the  general 
equilibrium model GEM-E3. 

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The CAFE Steering Group will continue to be the main forum for future stakeholder 
consultation but the current structure of the consultative groups on air pollution will 
need to be modified over time. In addition, a working group was established in May 
2005  to  assist  in  the  technical  work  associated  with  the  revision  of  the  NECD. 
Greater use is also likely to be made of the Regulatory Committee on air pollution 
regarding implementation issues, and in particular monitoring and reporting. 

6. 

CONCLUSION  

Air  pollution  continues  to  diminish  the  health  and  quality  of  life  of  EU  citizens  as 
well as the natural environment. The magnitude of these effects is too large to ignore 
and  doing  nothing  more  beyond  implementing  existing  legislation  is  not  a  sensible 
option. This Strategy sets out a long term perspective for cleaner air in Europe. 

EN 

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