Communication from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions - Thematic Strategy on the sustainable use of natural resources {SEC(2005) 1683} {SEC(2005) 1684}
Date: 2005-12-21
Institutions: European Commission
Subjects: EU environmental policy, environmental impact, evaluation of resources, management of resources, renewable energy, sustainable development

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 21.12.2005 
COM(2005) 670 final 

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

Thematic Strategy on the sustainable use of natural resources 

{SEC(2005) 1683} 
{SEC(2005) 1684} 

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TABLE OF CONTENTS 

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

Thematic Strategy on the sustainable use of natural resources .................................................. 3 

1. 

2. 

3. 

4. 

5. 

5.1. 

5.2. 

5.3. 

5.4. 

6. 

7. 

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

European environment policy and resource use – problems and policy responses ..... 4 

Meeting the challenge – the strategy’s objective ......................................................... 5 

Capitalising on the existing policy framework: applying the life-cycle thinking to 
existing policies............................................................................................................ 6 

New initiatives – laying the foundations for the next 25 years.................................... 7 

Building the knowledge base – a Data Centre for policy-makers to enhance and 
improve the knowledge base on resource use and its environmental impacts............. 8 

Measuring progress – developing indicators................................................................ 8 

The internal dimension – Member States and the High-Level Forum......................... 9 

The global dimension – an International Panel on the sustainable use of natural 
resources..................................................................................................................... 10 

Expected impacts and results ..................................................................................... 11 

Review process........................................................................................................... 11 

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

Thematic Strategy on the sustainable use of natural resources 

1. 

INTRODUCTION 

European  economies  depend  on  natural  resources,  including  raw  materials  such  as 
minerals, biomass and biological resources; environmental media such as air, water 
and soil; flow resources such as wind, geothermal, tidal and solar energy; and space 
(land area). Whether the resources are used to make products or as sinks that absorb 
emissions (soil, air and water), they are crucial to the functioning of the economy and 
to our quality of life. The way in which both renewable and non-renewable resources 
are used and the speed at which renewable resources are being exploited are rapidly 
eroding the planet’s capacity to regenerate the resources and environment services on 
which  our  prosperity  and  growth  is  based.  As  the  recent  Millennium  Ecosystem 
Assessment report1 states, over the past 50 years, humans have changed ecosystems 
more  rapidly  and  extensively  than  in  any  comparable  period  of  time  in  human 
history, largely to meet rapidly growing demands for food, fresh water, timber, fibre, 
and fuel. 

If  current  patterns  of  resource  use  are  maintained  in  Europe,  environmental 
degradation  and  depletion  of  natural  resources  will  continue.  The  issue  has  also  a 
global  dimension.  The  EU  is  highly  dependent  on  resources  coming  from  outside 
Europe  and  the  environmental  impact  of  resource  use  by  the  EU  and  other  major 
economies  is  felt  globally.  At  the  same  time  the  growing  economies  of  the 
developing  world  such  as  China,  India  and  Brazil  are  using  natural  resources  at  an 
accelerating  pace.  If  the  world  as  a  whole  followed  traditional  patterns  of 
consumption,  it  is  estimated  that  global  resource  use  would  quadruple  within  20 
years. The negative impact on the environment would be substantial. The alternative 
can  be  to  adopt  a  coordinated  approach,  anticipating  the  need  to  shift  to  more 
sustainable use patterns, which can result in environmental and economic benefits in 
Europe and globally. 

The  challenge  for  policymakers  is  to  facilitate  and  stimulate  growth  while  at  the 
same time ensuring that the state of the environment does not get worse. These are 
not competing goals. Efficient use of resources contributes to growth. Inefficient use 
of resources and overexploitation of renewable resources constitute long term brakes 
on growth. 

The sustainable use of resources, involving sustainable production and consumption 
is hence a key ingredient of long-term prosperity, both within the EU and globally. 
Indeed,  the  EU  Strategy  for  Growth  and  Jobs2  endorsed  by  the  Spring  Summit  of 
2005 gives high priority to more sustainable use of natural resources. It also calls for 

1 

2 

Millennium  Ecosystem  Assessment,  Ecosystems  and  Human  Well-being:  Synthesis,  Island  Press, 
Washington, DC, 2005, pp. 1-6 (http://www.millenniumassessment.org/en/index.aspx). 
COM(2005) 141. 

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the EU to take the lead towards more sustainable consumption and production in the 
global  economy.  Europe  therefore  needs  a  long-term  strategy  that  integrates  the 
environmental impacts of using natural resources, including their external dimension 
(i.e.  impacts  outside  the  EU,  including  on  developing  countries)  in  policymaking. 
This Thematic Strategy on the sustainable use of natural resources (‘the strategy’) is 
a response to that challenge. It has to be seen in context with the recently reviewed 
Sustainable Development Strategy (SDS)3 and contributes to it.  

The  strategy  emphasises  the  importance  of  integration  of  environmental  concerns 
into other policies that affect environmental impacts of natural resources use but does 
not  attempt  to  implement  specific  initiatives  in  areas  that  are  already  covered  by 
well-established policies. It sets out an analytical framework with a view to allowing 
the  environment  impact  of  resource  use  to  be  routinely  factored  into  public 
policymaking.  If  applied,  this  approach  will  help  to  move  European  economies 
towards  a  situation  in  which  growth  objectives  are  met  by  using  natural  resources 
more efficiently, without further eroding the natural resource base. 

2. 

EUROPEAN  ENVIRONMENT  POLICY  AND  RESOURCE  USE  –  PROBLEMS  AND  POLICY 
RESPONSES 

Resource use has been an issue in European environment policy discussions over the 
past 30 years. A major concern in the 1970s, following the first oil crises, was natural 
resource  scarcity  and  limits  to  growth.  However,  as  already  indicated  by  the 
Commission  in  the  ‘Towards  Communication’4,  scarcity  has  not  proven  to  be  as 
environmentally  problematic  as  then  predicted.  The  world  has  not  run  out  of  fossil 
fuels and the market, through the price mechanism, has regulated scarcity. The use of 
many metals and minerals has declined because of changing technology rather than 
depletion of reserves.  However, rapidly growing  demand  and  bottlenecks  in supply 
can cause acute economic and environmental problems, as the recent price hikes for 
many raw materials have demonstrated. 

Damage to the natural resource base, therefore, was and remains an issue. Initially, 
environment policies focused on the visible problems due to emissions and waste – 
reducing pollution from “point sources” like factories and power plants. They have 
met  with  success.  Air  and  water  quality  have  improved.  A  larger  part  of  the  waste 
generated  is  being  recycled,  and  less  of  it  is  going  to  landfill.  An  analysis  of 
materials and waste streams in the EU, including imports and exports, showed that, 
in  the  last  20  years,  overall  consumption  per  inhabitant  has  remained  virtually 
unchanged in the EU at around 16 tonnes per year, and yet the economy has grown 
by 50% over that period. This means that Europe has significantly improved material 
efficiency.  Despite  these  improvements,  increased  production  volumes  have  often 
outpaced  any  overall  environmental  improvements  or  efficiency  gains  and  current 
policies have not been sufficient to reverse fundamentally unsustainable trends either 
in Europe or globally. 

3 
4 

COM(2001) 264 and COM(2005) 658. 
COM(2003) 572. 

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To  have  more  of  an  impact  in  reversing  these  unsustainable  trends,  containing 
environment degradation and preserving the essential services that natural resources 
provide, environment policy needs to move beyond emissions and waste control. It is 
necessary to develop means to identify the negative environmental impacts of the use 
of  materials  and  energy  throughout  life  cycles  (often  referred  to  as  the  cradle  to 
grave approach) and to determine their respective significance. This understanding of 
global  and  cumulative  impacts  along  a  causal  chain  is  needed  in  order  to  target 
policy  measures  so  that  they  can  be  most  effective  for  the  environment  and  more 
cost-efficient for public authorities and economic operators. 

It  is  also  not  sufficient  to  look  at  life  cycles  in  geographic  isolation.  In  an  era  of 
globalisation, in a world economy in which Europe is an active participant, informed 
policy-making  requires  knowledge  of  how  resources  move  through  the  global 
economy,  what  drives  this  and  what  the  impacts  are  wherever  the  resources  are 
extracted and used. 

The Sixth Environment Action Programme5 (Sixth EAP) recognised this, calling for 
the  preparation  of  “a  thematic  strategy  on  the  sustainable  use  and  management  of 
resources…”. This strategy is based on analysis of resource use within the EU and of 
existing analytical and policy frameworks. It was prepared in close consultation with 
stakeholders6. 

The  strategy  further  develops  an  approach  that  delivers  the  best  return  on  effort 
invested in environmental protection. Focusing the finite means of government and 
economic players on the major environmental problems will be part of this. 

3. 

MEETING THE CHALLENGE – THE STRATEGY’S OBJECTIVE 

The strategic approach to achieving more sustainable use of natural resources should 
lead  over  time  to  improved  resource  efficiency,  together  with  a  reduction  in  the 
negative environmental impact of resource use, so that overall improvements in the 
environment  go  hand  in  hand  with  growth.  The  overall  objective  is  therefore  to 
reduce  the  negative  environmental  impacts  generated  by  the  use  of  natural 
resources in a growing economy – a concept referred to as decoupling7. In practical 
terms,  this  means  reducing  the  environmental  impact  of  resource  use  while  at  the 
same  time  improving  resource  productivity  overall  across  the  EU  economy.  For 
renewable resources this means also staying below the threshold of overexploitation. 

To achieve this objective, the strategy includes actions to: 

•  improve our understanding and knowledge of European resource use, its negative 

environmental impact and significance in the EU and globally, 

•  develop  tools  to  monitor  and  report  progress  in  the  EU,  Member  States  and 

economic sectors, 

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Decision No 1600/2002/EC of the European Parliament and of the Council of 22 July 2002 laying down 
the Sixth Community Environment Action Programme (OJ L 242, 10.9.2002, p. 1). 
http://www.europa.eu.int/comm/environment/natres/index.htm 
For an illustrative example of the decoupling process in terms of resource productivity, see Annex 1. 

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•  foster  the  application  of  strategic  approaches  and  processes  both  in  economic 
sectors and in the Member States and encourage them to develop related plans and 
programmes, and 

•  raise  awareness  among  stakeholders  and  citizens  of  the  significant  negative 

environmental impact of resource use. 

The  strategy  will  enable  knowledge  of  resource  use  in  the  economy  to  be  brought 
together quicker and more easily. In doing so, it will consider other initiatives, such 
as  INSPIRE8,  and  build  on  them  as  appropriate.  This  will  allow  the  most  serious 
environmental  impacts  of  resource  use  to  be  identified  and  measures  taken  to 
alleviate them. 

Efforts will often need to be made in non-environmental policy areas. The approach 
advocated  will  strengthen  policymaking  at  all  levels  (EU,  national,  regional  and 
local).  A  better  understanding  of  the  environmental  impacts  of  resources  use 
throughout life cycles will allow policy makers to better prioritise and concentrate on 
areas where they can really make a difference. 

This  is  a  long-term  process  –  a  time  horizon  of  25  years  is  therefore  proposed.  It 
requires a combination of actions to be taken at different levels of governance and by 
various  actors.  It  entails  making  current  policies  work  better,  inter  alia  by 
strengthening their resource use dimension as appropriate and by developing a series 
of new initiatives to ensure that consideration of resource use impacts throughout life 
cycles is embedded in policy formulation. 

At  this  initial  stage,  this  strategy  does  not  set  quantitative  targets  for  “resource 
efficiency  and  the  diminished  use  of  resources”  as  prescribed  by  the  Sixth  EAP 
because it is not possible to do so with the current stage of knowledge and state of 
development  of  indicators.  Neither  the  data  underpinnings  nor  the  indicators  allow 
targets  to  be  set  that  would  clearly  serve  the  purpose  of  reducing  environmental 
impacts in a growing economy. The strategy does, however, set a process in motion 
whereby this could be possible over the course of the next five or ten years. 

4. 

CAPITALISING ON THE EXISTING POLICY FRAMEWORK: APPLYING THE LIFE-CYCLE 
THINKING TO EXISTING POLICIES 

The  approach  set  out  will  be  applied  through  existing  and  emerging  environment 
policies  (see  Annex  2).  The  negative  environmental  impacts  of  resource  use  have 
already  been  taken  into  consideration  in  many  of  these  policies  and  will  be 
systematically applied in the future. There is an increasing emphasis in environment 
policy on integrated approaches and linkages between environment media (air, water, 
soil) and in developing policies on cross-cutting environment themes that pay more 
attention to sustainable resource use (e.g. climate change, biodiversity etc.). This life-
cycle  thinking  is  reflected  in  particular  in  the  Thematic  Strategy  on  the  Prevention 
and Recycling of Waste. 

8 

SEC(2004) 980; http://www.ec-gis.org/inspire/ 

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Non-legislative approaches, such as the Integrated Product Policy9 (IPP), have been 
developed  specifically  to  reduce  the  negative  environmental  impacts  of  products 
across  their  life  cycle,  including  production,  use  and  disposal.  The  Environmental 
Technology Action Programme10 (ETAP), likewise, has identified numerous ways in 
which environmental technologies can reduce the negative environmental impacts of 
production and consumption. 

The  life-cycle  thinking  can  be  usefully  applied  across  various  policy  fields.  All  of 
these policies affect resource use and therefore need to further integrate resource use 
issues and their negative impacts in a coordinated way. For example, in the transport 
field  the  White  Paper  on  the  European  Transport  Policy11  fixed  as  objective  the 
promotion of modal split to environmental friendly modes of transport. In the energy 
field  measures  in  the  main  energy  consuming  sector  (in  particular  buildings  and 
transport) have been taken, whose implementation will result in major improvements 
in  environmental  impacts.  Recent  reforms  in  certain  policy  areas,  particularly  the 
fisheries  and  farming  sectors,  have  gone  a  long  way  towards  taking  the 
environmental  impacts  of  resource  use  into  consideration.  Indeed,  the  Sustainable 
Development Strategy was adopted in response to this need for consistent, joined-up 
policy making across economic, social and environment fields. 

The Commission intends to develop sectoral initiatives for specific economic sectors 
in  the  context,  inter  alia,  of  the  EU  Strategy  for  Growth  and  Jobs,  together  with 
initiatives announced in its recent Communication on industrial policy12. This would 
contribute not only to strengthening competitiveness and overall performance, but as 
well  to  reduced  negative  environmental  impacts.  Pursuing  enhanced  eco-efficiency 
may  also  act  as  a  driver  for  innovation,  improved  productivity  and  hence 
competitiveness and growth (see Annex 4). 

The  Commission’s  integrated  impact  assessments,  which  consider  the  economic, 
social  and  environmental  impacts  of  different  policy  options  for  major  policy 
proposals,  will  be  an  important  means  of  applying  the  life-cycle  thinking13.  At  the 
national  level,  Member  States  can  use  the  outcomes  of  environmental  impact 
assessments14  as  well  as  of  strategic  environmental  assessments15  to  reduce  the 
negative  environmental  impacts  of  resource  use  of  individual  projects  or  plans, 
programmes and policies. 

5. 

NEW INITIATIVES – LAYING THE FOUNDATIONS FOR THE NEXT 25 YEARS 

New  initiatives  are  called  for  at  all  levels  of  governance  –  at  EU,  national  and 
international level – if this strategy is to be successfully implemented. 

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15 

COM(2003) 302. 
COM(2004) 38. 
COM(2001) 370. 
COM(2005) 474. 
COM(2002) 276. 
Council Directive 85/337/EEC of 27 June 1985 on the assessment of the effects of certain public and 
private projects on the environment, as amended. 
Directive  2001/42/EC  of  the  European  Parliament  and  of  the  Council  of  27  June  2001  on  the 
assessment of the effects of certain plans and programmes on the environment. 

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At  EU  level,  this  will  entail  a  concerted  effort  to  build  the  knowledge  base,  to 
develop  indicators  that  can  be  used  in  policy  discussions  and  to  launch  sectoral 
initiatives  with  economic  operators.  Given  the  strong  global  dimension  of  EU 
resource  use  and  the  need  for  EU  policymakers  to  take  this  into  account,  an 
international expert forum will be set up to look at global aspects of resource use and 
its negative environmental impacts. 

5.1. 

Building the knowledge base – a Data Centre for policy-makers to enhance and 
improve the knowledge base on resource use and its environmental impacts 

In  certain  cases  there  is  a  paucity  of  information  about  the  complex  causal 
relationships underlying diffuse pollution and resource use. Information is not readily 
accessible in a usable form for policymakers. Various data and information providers 
- within the Commission DG Eurostat, the Joint Research Centre (DG JRC) and the 
Directorate-General for Research (DG RTD), as well as the European Environment 
Agency  (EEA),  the  Intelligent  Energy  Executive  Agency,  national  institutes, 
universities  and  commercial  sources  –  are  involved  in  analysing  resource  use. 
However, the exchange of information is not always optimal. 

The  gaps  and  overlaps  point  to  the  need  for  a  Data  Centre  for  natural  resources,  a 
lead or central service to act as an “information hub” bringing together all available, 
relevant  information,  to  monitor  and  analyse  it  and  to  provide  policy  relevant 
information to decision makers. By pulling together existing basic data, knowledge, 
scientific expertise and networking capabilities of the aforementioned providers, the 
Commission will address the Environment Council’s call to “improve the quality of 
information  by  a  strategic  European  capacity  for  the  gathering  and  pooling  of 
knowledge about resource use and impacts and related policy assessment, in order to 
decide which impacts to tackle and to develop options on how they can be reduced in 
a growing economy”16. 

The information providers will also have a role in other components of the strategy: 
developing  and  consolidating  suitable  indicators  for  measuring  the  strategy’s 
progress, assisting Member States in the development of  the concrete actions plans 
needed for delivering on the strategy’s objectives, supporting the International Panel 
in  its  tasks,  and  every  five  years,  starting  in  2010,  drafting  a  status  report  on  the 
implementation of the strategy to be fed into the Commission’s review process. 

Research  and  development  at  all  levels,  including  international,  European,  national 
and industrial programmes and projects, can play a multiple role in developing and 
implementing the strategy. The Seventh Research Framework Programme17 will put 
greater  emphasis  on  developing  tools  for  assessing  environmental,  economic  and 
social impacts. 

5.2.  Measuring progress – developing indicators 

Working  towards  the  strategy’s  objective  demands  that  progress  be  measured 
adequately,  and  that  the  information  be  available  to  policymakers  and  citizens. 

16 

17 

Conclusions adopted by the Council (Environment) at its meeting on 28 June 2004 (doc. 10988/04 of 
1.7.2004). 
COM(2005) 119. 

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Further development of a set of indicators is needed, building on the substantial work 
already  undertaken  in  the  fields  of  environmental  accounting,  material  flow 
accounting and life cycle inventories. By 2008, the Commission will develop: 

–  indicators to measure progress in efficiency and productivity in the use of natural 

resources, including energy, 

–  resource-specific indicators to evaluate how negative environmental impacts have 

been decoupled from resource use, and 

–  an  overall  indicator  to  measure  progress  in  reducing  the  ecological  stress  of 

resource use by the EU (eco-efficiency indicator). 

Ideally,  all  indicators  will  be  as  aggregated  as  possible,  easily  understandable  and 
built on existing work at Member State, EU and international level (see Annex 3). In 
case  aggregation  fails  (for  instance  due  to  methodological  or  technical  difficulties) 
the underlying baskets will be used instead to measure progress towards sustainable 
use of natural resources18. The indicators will also help to identify the uses of natural 
resources  that  contribute  most  to  negative  environmental  impacts.  They  will  also 
help to prioritise policymaking, in particular in determining the sectors that should be 
engaged  in  the  development  of  sectoral  initiatives.  In  an  initial  phase,  the 
Commission will build on the preliminary results of existing studies. 

5.3. 

The internal dimension – Member States and the High-Level Forum 

Many of the actions needed to implement this strategy can be best taken at national 
level. Aside from agriculture and fisheries, most natural resource policies do not fall 
under  exclusive  Community  competence.  The  Member  States  have  certain  policy 
tools  at  their  disposal,  such  as  economic  instruments,  that  are  difficult  to  deploy  at 
Community level. Member States also have responsibility for education and training 
curricula  and  are  better  placed  to  pursue  consumer  policies  aimed  at  changing 
behaviour. 

The  Commission  proposes  that  each  EU  Member  State  develop  national  measures 
and programmes on the sustainable use of natural resources to achieve the strategy’s 
objectives. These measures and programmes should focus on resource use which has 
the  most  significant  environmental  impacts.  Member  States  should  also  include 
mechanisms  to  monitor  progress  and,  where  possible,  develop  targets.  Annex  5 
suggests a certain number of measures that could be considered by Member States. 

In  order  to  facilitate  the  development  of  these  national  measures,  the  Commission 
will  set  up  a  High-Level  Forum  composed  of  senior  officials  responsible  for  the 
development of natural resource policy in the Member States, representatives of the 
Commission  and,  as  appropriate,  consumer  organisations,  environmental  NGOs, 
industry, academia and other stakeholders with specific interest and expertise in the 
issues at hand. 

18 

Examples  of  underlying  indicators  are  CO2,  NOx  and  SO2  emissions,  increase  in  built-up  land,  water 
pollution, exceedance of critical loads of pollution, etc. 

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In parallel, the Commission will also identify measures taken in Member States that 
could  be  usefully  applied  EU-wide  and  will  invite  Member  States  to  identify 
environmental problems that they consider could be effectively tackled using market-
based  instruments,  but  where  lack  of  coordinated  action  at  EU  level  is  seen  as  an 
obstacle  to  their  use.  The  use  of  market-based  instruments  in  managing  natural 
resources  will  be  particularly  considered  by  the  Commission  in  the  High-Level 
Forum as well as in the review process for this strategy, presented in Section 7. 

5.4. 

The global dimension – an International Panel on the sustainable use of natural 
resources 

The attention paid to resource use is increasing at international level19. In particular, 
the  OECD  has  set  the  goal  of  decoupling  environmental  pressures  from  economic 
growth20.  The  OECD/DAC  has  also  published  a  joint  agency  paper21  on 
Environmental  Fiscal  Reform  (EFR),  which  underlines  how  EFR  can  contribute  to 
more sustainable use of natural resources, and provides useful guidance for action. 

Furthermore,  under  the  DCECI22,  the  Commission  will  propose,  as  of  2007,  a 
thematic  programme  for  environment  and  sustainable  management  of  natural 
resources including energy.  

Finally,  at  the  World  Summit  on  Sustainable  Development  in  2002,  all  countries 
committed  themselves  to  changing  unsustainable  patterns  of  consumption  and 
production. 

To bring together and sustain this focus, this Communication suggests setting up an 
International  Panel  on  the  sustainable  use  of  natural  resources  in  cooperation  with 
UNEP and possibly other international partners and initiatives, e.g. UNIDO and the 
International  Energy  Agency  (IEA).  It  will  assess  and  provide  information  on  the 
global aspects of resource use and environmental impacts. The panel will (see Annex 
6): 

–  provide  independent  advice  to  the  Commission  on  the  environmental  impacts  of 
natural resources use in a global context, also taking into account economic and 
social impacts; 

–  contribute to building the knowledge base and monitoring progress; 

–  develop  sustainability  benchmarks  for  extracting,  harvesting,  transporting  and 
storing  materials  and  products  coming  from  outside  the  EU,  to  include  not  only 
material quality standards but also production quality standards, taking account of 
social and environmental issues; 

–  advise  developing  countries  on  how  to  develop  their  capacity  to  assess  the 
environmental  impacts  of  their  natural  resource  use  and  resource  management 

19 

20 
21 
22 

For  Japan  see  http://www.env.go.jp/en/pol/wemj/outline.pdf  and  for  China  http://eng.cciced.org/cn/ 
company/Tmxxb143/card143.asp?lmid=5209&siteid=1&tmid=320&flbh=143. 
“Environmental Strategy for the First Decade of the 21st Century”, OECD, 16 May 2001. 
With contributions World Bank, DFID, Commission and a number of other organisations. 
Development Cooperation and Economic Cooperation Instrument. 

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policies  (which  could  then  be  implemented  as  part  of  co-operation  programmes 
with third countries); 

–  advise on the environmental impacts of the use of natural resources in the wider 
global  context,  for  example  as  part  of  the  UNEP-led  initiatives  on  sustainable 
production and consumption. 

6. 

EXPECTED IMPACTS AND RESULTS 

The  implementation  of  this  strategy  will  create  the  conditions  for  improved  eco-
efficient  resource  use  and  incentives  for  moving  towards  more  sustainable 
production  and  consumption  patterns.  This  will  have  positive  impacts  on  the 
economy,  particularly  since  these  incentives  will  help  business  to  innovate  and  to 
improve  their  competitiveness.  It  will  allow  policymakers  to  make  more  informed 
choices  of  policy  options  and  provide  the  means  (indicators,  data)  to  measure 
progress.  The  Impact  Assessment  accompanying  this  Communication  sets  out 
options  and  assesses  the  impacts  both  of  the  actions  set  out  above  and  actions  that 
were not deemed appropriate. 

7. 

REVIEW PROCESS 

The Commission will review the progress made in achieving the strategy’s objective 
in 2010 and then every five years. This review will feed into the final evaluation of 
the Sixth EAP. 

EN 

11 

   EN 

 
LEGISLATIVE FINANCIAL STATEMENT 

1. 

NAME OF THE PROPOSAL: 

Thematic Strategy on the sustainable use of natural resources (‘the strategy’). 

2. 

ABM / ABB FRAMEWORK 

Policy Area: 07 – Environment 

Activity: 07 04 – Implementation of environment policy 

3. 

BUDGET LINES 

3.1. 

Budget  lines  (operational  lines  and  related  technical  and  administrative 
assistance lines (ex- B..A lines)) including headings: 

07 01 04 01 - Legislation, awareness-raising and other general actions based on the 
Community  action  programmes  in  the  field  of  the  environment  -  Expenditure  on 
administrative management. 

07  04  02  –  Awareness  raising  and  other  general  actions  based  on  the  Community 
action programmes in the field of the environment. 

07 02 01 – Contribution to international environmental activities 

From 2007 onwards, the financial aspects relating to the objectives Data Centre and 
“indicators”  will  be  included  in  the  “LIFE  +”  programme.  The  financial  aspects 
linked  with  the  objective  “International  Panel”  will  be  covered  by  the  external  aid 
instruments under Heading 4 of the proposed financial framework. 

3.2. 

Duration of the action and of the financial impact: 

The strategy has a time span of 25 years (2006-2030). The direct actions foreseen in 
the Communication will kick-start the process. The present LFS covers the financial 
aspects relative to the initial six years (2006-2011). 

3.3. 

Budgetary characteristics : 

Budget 
line 

07 04 02 

07 02 01 

Type of expenditure 

New 

EFTA 
contribution 

Contributions 
from applicant 
countries 

Heading in 
financial 
perspective 

Non-
comp 
Non-
comp 

Diff23 

Diff 

NO 

NO 

NO 

NO 

NO 

NO 

No 3 

No 4 

23 

Differentiated appropriations. 

EN 

12 

   EN 

 
                                                 
4. 

SUMMARY OF RESOURCES 

The  needs  for  human  and  administrative  resources  shall  be  covered  within  the 
allocation  granted  to  the  managing  DGs  (DG  Environment  and  others)  in  the 
framework of the annual budget procedure. 

4.1. 

Financial Resources 

4.1.1. 

Summary of commitment appropriations (CA) and payment appropriations (PA) 

Expenditure type 

Section 
no. 

Year 
2006 

2007 

2008 

2009 

2010 

Total 

2011 
and 
later 

EUR million (to 3 decimal places) 

Operational expenditure24 - 07 04 02 

Commitment 
Appropriations (CA) 

8.1 

Payment  Appropriations 
(PA) 

a 

b 

Operational expenditure25 - 07 04 01 

Commitment 
Appropriations (CA) 

8.1 

Payment  Appropriations 
(PA) 

a 

b 

0.200  0.580 

0.980 

1.780 

1.630 

1.600 

6.7706 

0.133  0.427 

0.796 

1.460 

1.573 

2.381 

6.770 

0.240  0.610 

0.640 

0.750 

0.600 

0.710 

3.550 

0.160  0.455 

0.581 

0.709 

0.635 

1.010 

3.550 

Administrative expenditure within reference amount26 

Technical 
& 
administrative  assistance 
(NDA) 

8.2.4 

c 

0.150 

0 

0 

0 

0 

0 

0.150

TTOOTTAALL  RREEFFEERREENNCCEE  AAMMOOUUNNTT  

Commitment 
Appropriations 

Payment 
Appropriations 

a+c  0.590  1.190 

1.620 

2.530 

2.230 

2.310 

10.470 

b+c  0.443  0.881 

1.377 

2.169 

2.209 

3.391 

10.470 

Administrative expenditure not included in reference amount27 

Human 
associated 
(NDA) 

resources 

and 
expenditure 

8.2.5 

d 

0.783  0.783 

0.783 

0.783 

0.783 

0.783 

4.698 

24 
25 
26 
27 

Expenditure that does not fall under Chapter xx 01 of the Title xx concerned. 
Expenditure that does not fall under Chapter xx 01 of the Title xx concerned. 
Expenditure within article xx 01 04 of Title xx. 
Expenditure within chapter xx 01 other than articles xx 01 04 or xx 01 05. 

EN 

13 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
  
  
  
  
  
 
 
 
 
 
                                                 
Administrative  costs,  other 
than  human  resources  and 
associated 
not 
included in reference amount 
(NDA) 

costs, 

8.2.6 

e 

0.002  0.026 

0.056 

0.058 

0.058 

0.060 

0.260 

Total indicative financial cost of intervention 

TOTAL  CA 
cost 
Resources 

of 

TOTAL  PA 
cost 
Resources 

of 

including 
Human 

including 
Human 

Co-financing details 

a+c
+d+
e 

b+c
+d+
e 

1.375  1.999 

2.459 

3.371 

3.071 

3.153 

15.428 

1.228  1.690 

2.216 

3.010 

3.050 

4.234 

15.428 

If  the  proposal  involves  co-financing  by  Member  States,  or  other  bodies  (please 
specify  which),  an  estimate  of  the  level  of  this  co-financing  should  be  indicated  in 
the table below (additional lines may be added if different bodies are foreseen for the 
provision of the co-financing): 

EUR million (to 3 decimal places) 

Yea
r n 

n + 1 n + 2 n + 3 n + 4  n + 5 
and 
later 

Total 

Co-financing body 

…………………… 

TOTAL CA including 
co-financing 

f 

a+c
+d
+e
+f 

One  of  the  actions  foreseen  under  the  strategy  (see  in  the  present  LFS  point  (3)  in 
section 5.3) will be run in co-operation with UNEP and will require the setting up of 
a  secretariat.  The  secretariat’s  work  will  be  funded  via  a  “trust  fund”  to  which 
different  bodies  and  organisations  may  be  willing  to  contribute.  However,  at  this 
stage it is not possible to predict the level of co-financing by Member States or other 
bodies. 

4.1.2.  Compatibility with Financial Programming 

X 

Proposal is compatible with existing financial programming. 

(cid:133) 

Proposal  will  entail  reprogramming  of  the  relevant  heading  in  the  financial 
perspective. 

EN 

14 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
(cid:133) 

Proposal  may  require  application  of  the  provisions  of  the  Interinstitutional 
Agreement28 (i.e. flexibility instrument or revision of the financial perspective). 

4.1.3.  Financial impact on Revenue 

X 

Proposal has no financial implications on revenue 

(cid:133) 

Proposal has financial impact – the effect on revenue is as follows: 

Budget line 

Revenue 

EUR million (to one decimal place) 

Situation following action 

[Yea
r n] 

[n+1] [n+2]  [n+3

] 

[n+4] [n+5]

29 

Prior to
action 
[Year 
n-1] 

a) Revenue in absolute terms 

b) Change in revenue 

 ∆ 

4.2. 

Human Resources FTE (including officials, temporary and external staff) – see 
detail under point 8.2.1. 

Annual requirements 

Year 
2005 

2006 

2007 

2008 

2009 

2010 
and 
later 

Total 
number 
human resources 

of 

7.25 

7.25 

7.25 

7.25 

7.25 

7.25 

5. 

CHARACTERISTICS AND OBJECTIVES 

5.1. 

Need to be met in the short or long term 

To address the environmental concerns relative to the use of natural resources (e.g. 
raw  materials  and  land),  the  strategy  will  put  in  place  actions  that  will  track  and 
monitor the use of natural resources through their whole life-cycle – “from cradle to 
grave”  –  and  develop  the  actions  necessary  to  reduce  their  environmental  impacts. 
The  focus  of  the  strategy  is  to  identify  –  during  the  25  year  timeframe  –  the  most 
serious  environmental  impacts  related  to  the  use  of  natural  resources  and  promote 
solutions  and  actions  to  overcome  them  by  increasing  knowledge  of  them  and 
providing easy access to it. 

28 
29 

See points 19 and 24 of the Interinstitutional agreement. 
Additional columns should be added if necessary i.e. if the duration of the action exceeds 6 years. 

EN 

15 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
5.2. 

Value-added  of  Community  involvement  and  coherence  of  the  proposal  with 
other financial instruments and possible synergy 

Considering that the driver of resource use in Europe is economic growth, while at 
the  same  time  economic  growth  is  a  major  EU  policy  objective,  the  only  way  to 
achieve a reduction of environmental impacts is to de-link or decouple resource use 
and associated environmental impacts from its driver: economic growth, and to do so 
at  European  level.  Trade  in  resources  is  significant  (with  EU  competence)  and  the 
use  of  products  and  services  are  both  shared  competence;  therefore  there  is  a  clear 
rationale for Community involvement. 

5.3. 

Objectives, expected results and related indicators of the proposal in the context 
of the ABM framework 

The strategy’s objective is to set out a series of actions that, in the longer- term, will, 
if  used  properly,  allow  the  decoupling  of  environmental  impacts  from  economic 
growth. 

In order to do that, a number of concrete actions are foreseen: 

Establishment of a Data Centre for knowledge purposes, 

1) 
2)  Development of strategy-relevant indicators, 
3) 

Establishment  of  an  International  Panel  on  the  sustainable  use  of  natural 
resources. 

More details on the expected results and their impacts are in the Communication and 
in the impact assessment attached to it, respectively. 

5.4.  Method of Implementation (indicative) 

X 

Centralised Management 

X 

X 

directly by the Commission 

indirectly by delegation to: 

(cid:133) 

executive Agencies 

X 

bodies set up by the Communities as referred to in art. 185 of the 
Financial Regulation 

(cid:133) 

national public-sector bodies/bodies with public-service mission 

(cid:133) 

Shared or decentralised management 

(cid:133)  with Member states 

(cid:133)  with Third countries 

X 

Joint management with international organisations (please specify) 

EN 

16 

   EN 

 
Relevant  comments:  Most  of  the  measures  foreseen  under  the  strategy  will  be 
directly  implemented  by  the  Commission  (launch  of  studies,  organisation  of 
meetings, running of service contracts etc). 

However,  one  of  the  actions  foreseen  (the  International  Panel  –  see  in  the  present 
LFS  point  (3)  in  section  5.3)  will  be  run  in  co-operation  with  UNEP.  It  is  initially 
foreseen  that  the  Commission  will  give  a  grant  to  UNEP  to  start  up  the  Panel's 
secretariat,  given 
international 
secretariats in the past (e.g. the IPCC secretariat in Geneva). In a second phase the 
running  of  the  secretariat  may  require  the  pooling  of  resources  from  a  number  of 
donors, for which it will not be reasonably possible or appropriate to assign the share 
contributed by each donor to each type of expenditure. 

their  knowledge  and  expertise 

in  managing 

Another one of the actions foreseen (the Data Centre – see in the present LFS point 
(1) in section 5.3) will be run in co-operation with the EEA given their knowledge 
and expertise in natural resources and the setting up networks of experts. 

6. 

MONITORING AND EVALUATION 

6.1.  Monitoring system 

The Commission proposes to review the effectiveness of the strategy every five years 
following publication of the Communication. For this purpose the Commission will 
prepare a report which will be published and submitted to the institutions. 

6.2. 

Evaluation 

6.2.1.  Ex-ante evaluation 

The strategy has been the object of an impact assessment that will be published at the 
same time as adoption of the Communication. 

6.2.2.  Measures taken following an intermediate/ex-post evaluation (lessons  learned from 

similar experiences in the past) 

The approach of policy-making using the tool of a Thematic Strategy is a novelty of 
the Sixth EAP30. However, the measures contained in this specific strategy do not go 
beyond  normal  administrative  practice  (launch  of  studies,  organisation  of  expert 
meetings,  service  contracts  of  relatively  small  amounts  of  money)  for  which 
appropriate financial safeguard procedures are in place. 

6.2.3.  Terms and frequency of future evaluation 

The Commission proposes to review the effectiveness of the strategy every five years 
following publication of the Communication. For this purpose the Commission will 
prepare a report which will be published and submitted to the institutions. 

30 

Decision No 1600/2002/EC of the European Parliament and of the Council of 22 July 2002 laying down 
the Sixth Community Environment Action Programme (OJ L 242, 10.9.2002, p. 1). 

EN 

17 

   EN 

 
                                                 
7. 

ANTI-FRAUD MEASURES  

The  proposed  activities  only  consist  of  expenditure  on  personnel,  expert  meetings 
and  study  contracts.  The  latter  will  be  subject  to  the  Commission’s  usual  control 
mechanisms and therefore there is no need for supplementary anti-fraud measures. 

In particular, potential beneficiaries and contractors shall comply with the provisions 
of  the  Financial  Regulation  and  provide  the  evidence  of  their  financial  and  legal 
soundness. For grants, they are required to supply provisional statements of income 
and  expenditure  related  to  the  project/activity  for  which  funding  is  requested. 
Payments  are  made  on  the  basis  of  the  terms  and  conditions  related  to  the  grant 
agreement and on the basis of expenditure and income statements duly certified by 
the beneficiary and checked by the relevant service of the Commission. On the spot 
controls  are  also  possible  and  beneficiaries  are  required  to  keep  all  details  and 
supporting documents for a period of five years after the completion of the project. 

EN 

18 

   EN 

 
(Headings of 
Objectives, 
actions and 
outputs 
should be 
provided) 

OBJECTIVE31 

Data Centre 

- Expert 
lt ti
Indicators 

- Expert 
lt ti
- Land use 
i di

t

8. 
8.1. 

DETAILS OF RESOURCES 
Objectives of the proposal in terms of their financial cost 

Type of output 

Av. 
cost 

Year  
2006 

Year 
2007 

Year 
2008 

Year 
2009 

Year 
2010 

Year n 
2011 and later 

TOTAL 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

Commitment appropriations in EUR million (to 3 decimal places) 

Reports 

0.040 

5 

0.200 

10 

0.400 

20 

0.800 

40 

1.600 

40 

1.600 

40 

1.600 

155 

6.200 

Reports 

Reports 

0.030 

0.150 

1 

1 

1 

0.030 

0.150 

0.610 

1 

1 

1 

0.030 

0.150 

0.640 

1 

1 

1 

0.030 

0.150 

0.750 

1 

1 

0.030 

0.600 

1 

0.710 

4 

3 

1 

0.120 

0.450 

3.550 

International 
Panel 

Running of IP 
Secretariat 

0.592 

1 

0.240 

TOTAL 
COST 

0.440 

1.190 

1.620 

2.530 

2.230 

2.310 

10.320 

31 

As described under Section 5.3. 

EN 

19 

EN 

 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
8.2. 

Administrative Expenditure 

8.2.1.  Number and type of human resources 

Types of 
post 

Staff to be assigned to management of the action using existing and/or additional 
resources (number of posts/FTEs) 

Year 2006  Year 2007  Year 2008  Year 2009  Year 2010  Year 2011 

A*/AD 

5.25 

5.25 

5.25 

5.25 

5.25 

5.25 

B*, 
C*/AST 

2 

2 

2 

2 

2 

2 

Officials 
or 
temporary 
staff32 
(XX 01 
01) 

Staff  financed33  by 
art. XX 01 02 

staff34 
Other 
financed  by  art.  XX 
01 04/05 

TOTAL 

7.25 

7.25 

7.25 

7.25 

7.25 

7.25 

Included in this Table are the total human resources needed for the implementation 
of  the  strategy  across  different  Commission’s  services  (e.g.  DG  ENV,  JRC, 
Eurostat).35 

8.2.2.  Description of tasks deriving from the action 

The  tasks  to  be  performed  are  within  normal  administrative  practice  and  include 
launch of studies, organisation of expert meetings, management of service contracts, 
and the likes. 

8.2.3. 

Sources of human resources (statutory) 

X 

(cid:133) 

(cid:133) 

(cid:133) 

(cid:133) 

Posts currently allocated to the management of the programme to be replaced 
or extended 

Posts pre-allocated within the APS/PDB exercise for year n 

Posts to be requested in the next APS/PDB procedure 

Posts  to  be  redeployed  using  existing  resources  within  the  managing  service 
(internal redeployment) 

Posts required for year n although not foreseen in the APS/PDB exercise of the 
year in question 

32 
33 
34 
35 

Cost of which is NOT covered by the reference amount. 
Cost of which is NOT covered by the reference amount. 
Cost of which is included within the reference amount. 
DG ENV quota is 2.25 for A*/AD and 1 for B*/AST. 

EN 

20 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
8.2.4.  Other  Administrative  expenditure  included  in  reference  amount  (XX  01  04/05  – 

Expenditure on administrative management) 

EUR million (to 3 decimal places) 

Budget line 

(number and heading) 

Year
2006 

Year
2007 

Year
2008 

Year
2009 

Year
2010 

Year 
2011 

and later 

TOTAL 

Technical 

1 
and 
assistance (including related staff costs) 

administrative 

Executive agencies36 

Other 

technical 

and 

administrative 

assistance 

- intra muros  

- extra muros 

0.150 

Total  Technical  and  administrative 
assistance 

0.150 

0.150 

0.150 

8.2.5.  Financial cost of human resources and associated costs not included in the reference 

amount 

Type of human resources 

Year 
2006 

Year 
2007 

Year 
2008 

Year 
2009 

Year 
2010 

Year 
2011  

and later 

EUR million (to 3 decimal places) 

Officials and temporary staff (XX 01 
01) 

Staff  financed  by  Art  XX  01  02 
(auxiliary, END, contract staff, etc.) 

(specify budget line) 

Total cost of Human Resources 
and associated costs (NOT in 
reference amount) 

0.783 

0.783 

0.783 

0.783 

0.783 

0.783 

0.783 

0.783 

0.783 

0.783 

0.783 

0.783 

36 

Reference should be made to the specific legislative financial statement for the Executive Agency(ies) 
concerned. 

EN 

21 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
Calculation– Officials and Temporary agents 

Each FTE is rated at €108,000 per annum. 

Calculation– Staff financed under art. XX 01 02 

8.2.6 Other administrative expenditure not included in reference amount 

EUR million (to 3 decimal places) 

Year 
2006 

Year 
2007 

Year 
2008 

Year 
2009 

Year 
2010 

Year 
2011  

and 
later 

TOTAL 

XX 01 02 11 01 – Missions 

0.002 

0.006 

0.006 

0.008 

0.008 

0.010 

0.040 

XX 01 02 11 02 – Meetings & Conferences 

0.020 

0.050 

0.050 

0.050 

0.050 

0.220 

XX 01 02 11 03 – Committees37  

XX 01 02 11 04 – Studies & consultations 

XX 01 02 11 05 - Information systems 

2 Total Other Management Expenditure 

(XX 01 02 11) 

0.002 

0.026 

0.056 

0.058 

0.058 

0.060 

0.260 

3 

Other 

expenditure 

administrative 
including reference to budget line) 

nature 

of 

an 
(specify 

Total Administrative expenditure, other 
than human resources and associated 
costs (NOT included in reference 
amount) 

0.002 

0.026 

0.056 

0.058 

0.058 

0.060 

0.260 

Calculation - Other administrative expenditure not included in reference amount 

It is assumed that an average mission would cost €1,000. 

37 

Specify the type of committee and the group to which it belongs. 

EN 

22 

   EN