Opinion of the European Economic and Social Committee on  Sustainable development in agriculture, forestry and fisheries and the challenges of climate change
Date: 2006-01-18
Institutions: European Economic and Social Committee
Subjects: ESC opinion, European forestry policy, climate change, common agricultural policy, common fisheries policy, conservation of fish stocks, conservation of resources, sustainable agriculture, sustainable development, sustainable forest management

21.3.2006

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Official Journal of the European Union

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Opinion of the European Economic and Social Committee on ‘Sustainable development in agri-
culture, forestry and fisheries and the challenges of climate change’

(2006/C 69/02)

On 10 February 2005, the European Economic and Social Committee, under Rule 29(2) of its Rules of
Procedure, decided to draw up an opinion on: Sustainable development in agriculture, forestry and fisheries and
the challenges of climate change.

The Section for Agriculture, Rural Development and the Environment, which was responsible for preparing
the Committee's work on the subject, adopted its opinion on 9 November 2005. The rapporteur was
Mr Kallio.

At its 423rd plenary session, held on 18 and 19 January 2006 (meeting of 18 January), the European
Economic and Social Committee adopted the following opinion by 96 votes to 14 with 13 abstentions.

1. Introduction

has been very difficult because not even all the major signa-
tories, such as the United States, have committed themselves to
the widely accepted objectives.

1.1
In recent years climate change has become one of the
most critical issues for the future of the planet. A huge number
of studies have been carried out on climate change, which have
clearly demonstrated above all an increase in atmospheric
greenhouse gases, which are causing global warming. Changes
in the composition of
the atmosphere brought about by
human activity are accelerating. International researchers agree
that climate change is taking place, although there are different
opinions as to how quickly. An assessment report by the Inter-
governmental Panel on Climate Change (IPCC 2001) states
incontrovertibly that the process of atmospheric change will
continue over this century, accelerating global climate change.

the greatest environmental,

The EU and its Member States have been particularly
1.2
active in pursuing objectives that would slow atmospheric
warming. The Union has made many policy changes
in
different areas in order to achieve better results. The EU is at
the forefront of international efforts to combat climate change,
social and
which is one of
economic threats, and one that can have far-reaching and
global consequences. The EU should step up its climate protec-
tion efforts and also seek to reduce greenhouse gas emissions
from the agricultural, forestry and fisheries sectors in the light
its commitments to the UN Framework Convention on
of
Climate Change and to the provisions of the Kyoto Protocol.
This opinion attempts
into
to provide
strengthening EU efforts in relation to climate change and its
effects on forestry, agriculture and fisheries. It must be noted
that to date research has contributed significantly to improving
knowledge on the impact of climate change on forestry;
however less scientific information is available on the impact
on agriculture and a lesser amount still on the fisheries sector.

important

input

in different areas and sectors. Assessing all

1.4
Atmospheric warming has many effects, both direct and
these
indirect,
effects is a particularly demanding task for research. A massive
research effort is under way in different parts of the world.
Numerous scenarios have been created for climate change. The
effects on human and natural systems have been estimated on
the basis of available knowledge. The effects will be either nega-
tive or positive, depending on the area concerned and the
changes in conditions. The international community and the
EU have focused in the first instance on reducing greenhouse
gas emissions so as to slow the advance of climate change.
Climate change is not just a matter for environmental policy,
but also has major economic, social and cultural implications
for the whole of mankind, and of course also for the develop-
ment of the European Union.

As well as curbing climate change, the EU and other
1.5
countries and regions should do much more to improve the
ability of people and economies to adapt to the changes taking
place. This is particularly important since even if climate
change could be prevented in the long run, the changes that
are already imminent will require major adjustment measures
in different sectors of society, both at national and international
level. Climate change will also have a significant impact on
global economic trends and growth. The EU has presented its
own assessments of economic and energy consumption trends.

The international community has tried on the basis of
1.3
several agreements, such as the Kyoto Protocol on Climate
Change, to influence various policies so as to contain green-
house gas emissions. However, implementing these agreements

1.6
Adapting to climate change is a major challenge for
sustainable development in most economic sectors in the Euro-
pean Union. Climate change necessitates adjustments in at least
the following areas:
industry, energy, transport, construction,
health, tourism, insurance, land use, biodiversity, use of nature
for recreation, water resources, fishing, forestry, agricultural,
livestock and food production, as well as hunting and reindeer-
adaptation strategy must
husbandry. A climate

change

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therefore be drawn up in the EU and the Member States. In this
own-initiative opinion the European Economic and Social
Committee wishes to present further ideas for developing the
adaptation strategy in the EU, notably in relation to the
primary industries of agriculture, forestry and fishing.

climate change will widen the prosperity gap between devel-
oped and developing countries, which will also have an impact
on food production and markets. It is quite conceivable that
climate change will lead to food shortages and conflicts over
access to food in some regions. It is important to take account
of the fact that climate change can lead to serious disruptions
in access to water resources.

1.7
The threat of natural catastrophes such as floods, gales
and hailstorms, which will increase in number as a result of the
anticipated climate changes, will have equally negative conse-
quences for the agricultural, forestry and fisheries sectors.

2. Changes and adaptation needs in EU agriculture in

response to the climate change process

2.1
In view of the anticipated effects of global warming,
there is every reason to expect that they will be felt particularly
heavily in agriculture and forestry and to some extent also in
the fisheries industry. Given the modest contribution these
sectors have made to greenhouse gas emission, their role has
been of marginal importance to date in the drafting and imple-
mentation of European climate change policies. According to
IPCC research, climate change is unavoidable;
it is therefore
vital to look at these sectors from the perspective of the neces-
sary adaptive changes.

2.2
The European agricultural, forestry and fishing models
should be based on sustainable production of renewable raw
materials and products for consumers and industry. The EU has
invested heavily in the quality of food and other products and
in safeguarding quality. Maintaining the targets and results
achieved will require new measures to adapt to climate change.

2.3
Climate change affects food production, access to water
and health in the EU and throughout the world. In the northern
regions of the EU atmospheric warming will cause crop yields
to rise, while in the south harvests will shrink because of
increasing aridity. The speed and forms of climate change will
vary across EU countries and regions, but for now, at least,
there is a clear warming trend. Both drinking and irrigation
water are becoming more difficult
to obtain in southern
regions.

Extreme weather

phenomena — storms,

floods,
2.4
droughts and prolonged heatwaves — will
increase. Global
warming increases the risk of insect- and water-borne diseases
spreading. Climate change also affects the incidence of these
problems in different countries and regions.

2.4.2
The EU will be better able to cope because of its good
infrastructure and the agricultural policy goal of maintaining
production across the Union. In this changing situation it is
essential that the EU should be able to maintain adequate
instruments and resources to develop and safeguard its own
food production.

2.5
The EU has not framed a clear adaptation strategy under
its agricultural policy that would respond to the already inevi-
table consequences of climate change. Some Member States
have drawn up or are drawing up national strategies for
adapting to climate change. European agriculture is basically
quite well placed to respond to climate change, as for instance
the adaptive capacity of crops is generally good.

2.5.1
It is possible by developing new plant varieties to
meet the demands of climate change within a few years. The
diversity of genetic resources can be tapped to facilitate adapta-
tion. Businesses should increase funding for developing new
in both plant and livestock production. An
technologies,
adequate risk management system should be developed to
reduce damage caused by weather variations and plant and
animal diseases.

2.5.2
It is also necessary to step up research in the agri-
cultural sector to develop new varieties that are more adaptable
to new ecological conditions (adaptation) or which do not
require such large inputs of, for example, nitrogenous fertilisers
(emissions control). University courses and research relating to
climate change should be strengthened and broadened, in both
basic research and research on climate change adaptation.

However, the key issue is to preserve the overall ferti-
2.5.3
lity of the EU's agricultural
land. Detrimental changes taking
place in the soil can be mitigated by developing new farming
practices. One critical question for agriculture will be the
substance of future water policy, especially in those regions
where water shortages are becoming an increasing problem.

2.4.1
The focus of food production in the European Union
will shift further north in the longer term. It is assumed that

2.6
The effects of climate change on global food markets
require further study, since market changes also impact on the
EU's own production targets.

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2.7
The European Union has introduced several environ-
mental policy measures affecting agriculture, with the aim of
reducing greenhouse gas emissions. The EU has also tried to
direct agriculture towards production of bioenergy crops,
which would have a positive impact on environmental and
climate policy. The EU should develop new environmental
measures in agriculture aimed at making more efficient use of
fertilisers and preventing as far as possible production of
methane by cattle or promoting its recovery. Thus changes in
EU agricultural and environmental policy will
influence the
future level of emissions.

across Europe and in certain regions. The EU believes that it
can adjust and adapt to future changes. According to present
knowledge, a climate-induced increase in water temperature
In
will probably not produce major changes in large seas.
contrast, the impact will be more significant in smaller water
bodies such as ponds, rivers and lakes. It is likely that fish
stocks will change significantly as a result of, among other
things, changes in the food supplies of fish. Various new fish
stocks may enter the warmer waters and others may disappear.

2.8
In this new situation cultivated land should be used
more than it is at present for non-food production. Use of
biofuels is still very low in most EU countries. Production must
be increased substantially if the target level set by the EU for
use of biofuels is to be reached. The EU should change certain
rules restricting the production of energy crops, such as the
hectare ceiling for aid and use of set-aside land for non-food
production. Bioenergy can be justified on grounds of employ-
ment, diversification of energy production and its positive
effects on climate change.

2.8.1
The EU should allow agriculture to play its full role as
a producer of biofuels, so that the EU can come closer to
the Biofuels Directive. The EU
achieving the objectives of
should reconsider the possibility of adapting certain CAP rules
and reappraise the content of the WTO's Blair House agree-
ment, which limits the production of oilseeds intended for non-
food production and grown on set-aside land. The EU should
remove this constraint as production aid is no longer granted
for oilseed production.

2.8.2
Adapting to climate change necessitates coordinated
cooperation along the whole food production chain, at both
international and EU level. The process of adaptation is also a
big challenge for consumers, for whom an effective information
and publicity effort should be mounted. The EU and the
Member States should organise a coordinated training, informa-
tion and publicity campaign to increase the general public's
basic understanding of complex climate change processes.

3.2
The changes may be greater in the inland and coastal
waters of the northern EU countries. It seems that quality cold-
water fish may become endangered. There will clearly be a
decrease especially in economically valuable fish such as
salmon in the EU's northern regions, and an increase in less
economically valuable coarse fish. The ability of different fish
species to adapt also varies widely. Obviously the rate of
climate change and how it affects water bodies are of key
importance. The general trend of climate change means rising
water temperatures, and there is already scientific evidence of
this in, for example, the polar regions and the bogs of Siberia.
On the other hand, the marine ecosystem responds relatively
flexibly to climate change effects. The situation is a lot more
problematic in the case of rivers and lakes, but here only scant
research is currently available on climate change adaptation.

3.3
Aquaculture opportunities may improve as a result of
climate change. The volume of water will grow in the future,
increasing the total area of coastal waters and making it
possible to expand aquaculture. The rise in the temperature of
the EU's northern waters will also increase fish food stocks. At
the same time, the higher water temperature may increase the
risk of disease and quality impairment. Changes in water
temperature will have not only economic consequences but
also natural consequences, above all by limiting biodiversity.

3. Need for adaptation in fisheries as well

3.1
EU fisheries policy has focused mainly on managing fish
stocks and controlling markets. Concern about changes in
water quality obviously also affects fishing. EU fisheries policy
has not made any specific allowance for climate change effects.
But EU climate change guidelines note that over the long term
climate change will have an impact on the fishing industry

The sustainable development of fish stocks should be
3.4
based on knowledge and research. It has often been very diffi-
cult to manage and implement EU fisheries policy. The sector
has faced considerable challenges and pressure, such as profit-
ability and dioxin problems, and regulation of fishing. The
adaptive capacity of the fisheries sector could also be improved
by reducing harmful human activities that cause eutrophication
and lower water quality. Fishing is an area in which there is a
great need for climate change studies. Water ecosystem
processes are very complex, which presents a considerable chal-
lenge for research. The EU could provide additional funding for
such work and step up its multilateral international research
activities and cooperation.

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4. Need for long-term strategies in forestry

increment

the annual

The EU's forest resources are growing steadily. Only half
4.1
of
is cut while new afforestation
programmes are creating additional forest reserves. The carbon
stored in forests and in wood is the most important carbon
sink after oceans. At the same time, wood-based products func-
tion as a substitute for products made with non-renewable
resources. European forestry policy falls within the competence
of Member States. EU legislation and international agreements
have an increasing impact on European forestry policy. The
Ministerial Conference on the protection of forests in Europe
(MCFPE) has established criteria and indicators for sustainable
forestry which serve as a key reference point for the sustainable
use of forest resources. The EU should support this process
within the framework of sustainable development, whilst never-
theless respecting the subsidiarity principle.

4.2 Well-managed forests provide the basis for opportunities
to adapt to climate change. EU forests are for the most part
managed on an ongoing basis and are thus able to sustain high
production levels and retain their vitality. The long time hori-
zons in forestry, with rotation periods of between 15 and 150
years, mean that any adaptation measures should begin as soon
as possible. Particular attention should be paid, at the present
point in time, to restocking methods, including the selection of
tree species. As climatic conditions are likely to change mark-
edly in a relatively short time period, Europe's forests will
become more vulnerable to insect damage. The EU should
foster improved cooperation between national forest manage-
ment authorities and stakeholders to prepare for major threats
from biotic organisms such as insects and fungi.

4.3
There is a wide variety of forest types in the EU. Euro-
pean forests can be divided according to geographical location
into the Boreal, Atlantic, Continental, Mediterranean, Alpine
and Macronesian forest zones. The biotic differences between
these zones are enormous. When devising a climate change
adaptation strategy for primary industries,
the strategy for
level.
forestry should be drawn up at national or regional
Forests play an important role as a significant stabilising factor
in Europe's natural ecosystem and their maintenance will have
a decisive impact on the stability of the continent's natural and
semi-natural ecosystems.

imported roundwood and wood-based products

4.5
In view of the high vulnerability to biotic pollution, the
EU should maintain its strict policy with regard to inspection
of
from
outside the EU. This is an effective way of protecting European
forests from harmful alien species, such as certain insects and
fungus species. Import checks must not lead to the setting up
of unwarranted barriers to international trade.

4.6
Forest fires are already a considerable problem, particu-
larly in the southern parts of the EU. Since climate change is
expected to exacerbate the situation, it is essential that the EU
build on its existing work in the area of preventing and
containing forest fires and developing European risk manage-
ment plans.

Thanks to sustainable forest management,

the EU's
4.7
forest potential
is growing steadily. Wood is a renewable
natural resource and promoting its use in society as a building
material and a source of energy is the most effective way of
locking up carbon dioxide in trees and wood-based products,
which function both as carbon sinks and a substitute for mate-
rials based on non-renewable resources.
In many countries,
increasing the use of wood offers one of the few opportunities
to create new jobs, especially in the countryside. This applies
particularly to the generation of wood-based energy, which is
highly labour-intensive and is often produced by local entrepre-
neurs using simple heating equipment.

involved.

4.8
Forest management is based on a complex biological
system, the study of which takes a long time, in part because of
Infrastructure and logistics
the long lead times
systems of various kinds are one of the keystones of economic-
ally viable forestry. Climate change is expected to lead to
drought in the south and wetter ground conditions in northern
regions, implying the need to develop forest machines which
can perform effectively without having a major impact on the
soil surface, for example when the machines are being oper-
ated, and to invest in basic biological research. In order to be
able to maintain the European forestry model and adapt to
changed climatic conditions, the EU should ensure adequate
funding for research and development
in this sector. The
Forest-Based Sector Technology Platform, which has been
established as part of the preparations for the Seventh Frame-
work Programme for research, should be noted. Collaboration
between research bodies across Europe and worldwide should
be facilitated.

4.4
Climate change has already increased and is expected to
further increase the number of natural catastrophes. In the case
of forests this means more forest fires, storm damage and wide-
spread insect damage. In order to be able to cope with such
crisis situations, the EU should take steps to quickly mobilise
support, and adequate material and financial assistance should
be ensured through, for example, the EU Solidarity Fund or
similar instruments.

4.9
Economically viable forestry is a sine qua non for
ensuring that private and public forests in Europe are properly
maintained and kept healthy. The EU should recognise the
legislation and
forest sector as an independent sector in all
always assess the consequences from this standpoint so that
rules which run counter to this view are not laid down unin-
tentionally.

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4.10
Original tree species are better able to adapt to local
climatic changes, inter alia, because of their genetic composi-
tion. Preference should therefore be given to native tree species
whilst at the same time attempting to introduce certain species
in more northerly locations in Europe.
In addition, mixed
forests should be recommended where this is possible.

4.11
Climate change will in all likelihood further widen the
economic disparities between the industrial and developing
countries. The EU should support efforts to establish a globally
binding forest convention incorporating adaptation strategies
which could help to steer development in many developing
countries. Capacity building and governance are needed to safe-
guard important forest resources around the world. The Clean
Development Mechanism (CDM) established under the Kyoto
protocol is an incentive for EU actors to contribute to afforesta-
tion in third world countries and a means of increasing EU
efforts with regard to the carbon dioxide quota system in devel-
oping countries.

4.12
Climate change has a major impact across the EU and
on different communities. Educational, training and informa-
tional measures and public debate should be stepped up
substantially by the Community so as to enable citizens to gain
an in-depth understanding of how significantly climate change
impacts on the future of EU forests.

4.13
Climate change may also entail positive consequences
for forestry, at least in the short run. This applies particularly
to the northern parts of Europe where there is already a
sector. The
modern, highly-developed independent
effects of climate change should be taken into account
in
forestry development measures across the EU.

forest

4.14
The production of cork and non-wood based products
such as berries, mushrooms, and environmental services should
be given careful consideration in the analysis of future changes.
In addition to cork, management of game reserves is an impor-
tant part of today's modern forestry and sustainable develop-
ment.

The EU's 1998 Forest Strategy and the action plan
4.15
currently under preparation by the Commission should take
account of climate change and propose the measures that need
to be taken, to help further the mobilisation of wood resources.
The Commission communication and European Council
conclusions have identified adaptation of forestry to climate
change as a key objective. It is essential that in this process
effective and close cooperation should be maintained between
the various Commission DGs, the Member States and stake-
holders.

The EU must try to ensure that a degree of flexibility is
4.16
and forestry
incorporated into international
programmes so that,
in emergencies areas of
woodland can be felled when the health of trees deteriorates
and they would be seriously damaged by insects. This would

for example,

agreements

allow the rapid re-afforestation of the afflicted areas with the
most appropriate tree species.

5. Conclusions and recommendations

5.1
The EESC considers climate change to be the biggest
challenge facing the European Union and the entire planet over
the coming years and decades. The EU must significantly step
up efforts to combat climate change and begin drawing up
adaptation strategies in a consistent way for various policy
areas. Future presidency countries must devote increasing atten-
tion to extending climate change policy to include also adapta-
tion measures.

rural

The EESC believes that

5.2
industries, agriculture,
forestry and fisheries have made only small contributions to
greenhouse gas emissions, as a result of which these sectors
have been overlooked in EU climate change policy. According
to research by the Intergovernmental Panel on Climate Change
(IPCC), climate change is unavoidable and it is therefore impor-
the EU also prepare the ground for adaptation
tant
measures in these sectors.

that

5.3
The EESC feels it is essential that the Union substantially
increase research resources for analysing climate change and
adaptation policies and for the implementation of security
programmes. This applies particularly to industries based on
natural resources.

5.4
The EESC requests that all of the EU's cultivable fields be
kept fit for production. From this perspective, the EU must step
up efforts to improve food security and security of supply. The
uncertainties of climate change for these primary industries
must be specifically taken into consideration when planning
future EU policy on agricultural support and production, trade
policy and energy policy.

5.5
The EESC calls for the EU to use international forums to
highlight the adverse effects of climate change from the point
of view of fighting world famine, which has obvious implica-
tions particularly for developing countries in equatorial regions.

5.6
The EESC believes that, in addition to combating climate
change, there is a need for the EU and all Member States to
begin the preparation of sectoral adaptation strategies. Such
strategies have already been drawn up in some Member States.
The Union can contribute to this work by bringing the benefit
of good coordination and the support of international agree-
ments, which would also help to intensify efforts to this end at
global level.

5.7
The EESC considers it important to study the knock-on
effects of climate change on rural industries. Climate change
also has major implications for other sectors (industry, energy,
transport, tourism, health), with indirect effects on the develop-
ment and adaptation needs of rural industries.

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5.8
The capacity of the EU and Member States to assess the
implications of climate change for fisheries is fairly poor.
Efforts in this area are crucially linked to the future develop-
ment of water resource management. Fisheries policy will also
have to assess the adjustments the sector needs to make to
adapt to changes in water resources and fisheries conditions.

5.9
The EESC believes that the production and use of wood
resources should be increased and that the role of forests in
containing climate change should be taken seriously. The EESC

feels that it is important to increase afforestation, both within
the EU and globally. This should also be the key focus of EU
development policy.

5.10
The EESC suggests that the Commission propose the
launch of a wide-ranging information and education campaign
within the EU and at international level, with a view also to
raising awareness among civil society players and political deci-
sion-makers. This could help to speed up the preparation and
introduction of adaptation strategies.

Brussels, 18 January 2006.

The president

of the European Economic and Social Committee

Anne-Marie SIGMUND

Opinion of the European Economic and Social Committee on the ‘Report from the Commission to
the Council, the European Parliament and the European Economic and Social Committee on the
rates of excise duty applied on alcohol and alcoholic beverages (presented pursuant to Article 8 of
Council Directive 92/84/EEC on the approximation of excise duty on alcohol and alcoholic
beverages)’

(COM(2004) 223 final)

(2006/C 69/03)

On 27 May 2004, the European Commission decided to consult the European Economic and Social
Committee, under Article 262 of the Treaty establishing the European Community, on the abovementioned
report.

The Section for Economic and Monetary Union and Economic and Social Cohesion, which was responsible
for preparing the Committee's work on the subject, adopted its opinion on 8 November 2005. The rappor-
teur was Mr Wilkinson.

At its 423rd plenary session of 18 and 19 January 2006 (meeting of 18 January 2006), the European
Economic and Social Committee adopted the following opinion by 81 votes to 33 with 15 abstentions.

1. Summary of Conclusion and Recommendations

to expect

1.1
The current system of taxation on alcohol and alcoholic
beverages is not working in accordance with what consumers
have a right
the
Member States (MS) have not agreed to harmonise the excise
rates applied to these products beyond the current agreement
on minimum rates. Excise is the term used by trade experts to
denote the tax payable in the country of consumption.

from the internal market but

coding in the Common Nomenclature. There are two major
categories of trade in these products to be taken into considera-
tion: trade between professionals and purchasing by private
individuals, which can take the form of either direct or mail-
order purchases, each of which raises separate issues.

1.4
Problems from the point of view of health are the result
of the abuse of alcohol by individuals, not the form in which
the alcohol is consumed.

1.2
The frequency of reports on the current system by the
Commission should be made more realistic by requiring them
no more frequently than every 5 years.

The current system regularly raises problems over the
1.3
place of certain products in the currently agreed structures to
which there is no simple answer; this can lead to each MS
finding its own solution. Problems also persist over the correct

1.5
Higher excise duties do not tackle the alcohol abuse
problems that exist with individuals. There is no conclusive
evidence that high rates of excise duty reduce the problems of
abuse over the longer term. Consequently, other measures
based essentially on education and prevention, must be
employed in order to tackle these problems and improve
public health.