Proposal for a Council Directive amending Council Directive 91/414/EEC to include carbendazim as active substance
Date: 2006-06-13
Institutions: European Commission
Subjects: confidentiality, exchange of information, marketing standard, plant health product, testing

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 13.6.2006 
COM(2006) 291 final 

Proposal for a  

COUNCIL DIRECTIVE 

amending Council Directive 91/414/EEC to include carbendazim as active substance 

(presented by the Commission) 

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EXPLANATORY MEMORANDUM 

The  attached  draft  proposal  for  a  Council  Directive  concerns  the  inclusion  under  strict 
conditions  of  carbendazim  as  active  substance  in  the  positive  list  (Annex  I)  of  Council 
Directive 91/414/EEC concerning the placing of plant protection products on the market. 

Council  Directive  91/414/EEC  creates  a  harmonised  framework  for  the  authorisation  and 
placing  on  the  market  of  plant  protection  products.  Active  substances  to  be  used  as  plant 
protection products are assessed and authorised at Community level and are listed in Annex I 
to  the  Directive.  Individual  plant  protection  products  containing  active  substances  are 
assessed and authorised by Member States under harmonised rules. 

The data submitted by industry have been initially evaluated by a rapporteur Member State, in 
this  case  Germany,  and  afterwards,  on  the  basis  of  their  draft  assessment  report,  by  the 
Commission and all the Member States within the framework of the Standing Committee on 
the Food Chain and Animal Health. 

In  view  of  the  hazardous  profile  of  the  substance,  the  conditions  of  inclusion  provide 
restrictions  to  those  crops  that  have  effectively  been  considered  during  the  Community 
evaluation  and  for  which  acceptable  use  may  be  expected  provided  highly  prescriptive  risk 
mitigation measures are applied. 

The draft Directive was submitted on 3 March 2006 to the Standing Committee on the Food 
Chain and Animal Health. 

9 Member States (117 votes) voted in favour, 
14 Member States (168 votes) voted against and 
2 Member States (36 votes) abstained 

The  Committee  delivered  no  opinion.  Consequently,  pursuant  to  Article  19  of  Directive 
91/414/EEC  and  in  accordance  with  Article  5  of  Council  Decision  1999/468/EC,  the 
Commission  is  required  to  submit  to  the  Council  a  proposal  relating  to  the  measures  to  be 
taken, the Council having three months in which to act by a qualified majority. 

The draft Directive is not subject to the right of scrutiny of the European Parliament (Article 8 
of Council Decision 1999/468/EC). 

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Proposal for a  

COUNCIL DIRECTIVE 

amending Council Directive 91/414/EEC to include carbendazim as active substance 

(Text with EEA relevance) 

THE COUNCIL OF THE EUROPEAN UNION, 

Having regard to the Treaty establishing the European Community, 

Having  regard  to  Council  Directive 91/414/EEC  of  15 July 1991  concerning  the  placing  of 
plant protection products on the market1, and in particular Article 6(1) thereof, 

Whereas:  

(1) 

(2) 

(3) 

(4) 

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Commission  Regulation  (EEC)  No  3600/92  of  11  December  1992  laying  down  the 
detailed  rules  for  the  implementation  of  the  first  stage  of  the  programme  of  work 
referred to in Article 8(2) of Council Directive 91/414/EEC concerning the placing of 
plant  protection products on  the  market2, establishes  a list  of  active substances to be 
assessed, with a view to their possible inclusion in Annex I to Directive 91/414/EEC. 
That list includes carbendazim. 

For carbendazim the effects on human health and the environment have been assessed 
in  accordance  with  the  provisions  laid  down  in  Regulation  (EEC)  No  3600/92  for  a 
range of uses proposed by the notifier. By Commission Regulation (EC) No 933/94 of 
27  April  1994  laying  down  the  active  substances  of  plant  protection  products  and 
designating  the  Rapporteur  Member  State  for  the  implementation  of  Commission 
Regulation  (EEC)  No  3600/923,  Germany  was  designated  as  Rapporteur  Member 
State. Germany submitted the relevant assessment report and recommendations to the 
Commission  on  10  February  1998  in  accordance  with  Article  7(1)(c)  of  Regulation 
(EEC) No 3600/92. 

The assessment report has been reviewed by the Member States and the Commission 
within the Standing Committee on the Food Chain and Animal Health.  

The  review  of  carbendazim  revealed  a  number  of  open  questions  which  were 
addressed by the Scientific Committee on Plants. The Scientific Committee was asked 
to comment on the advisability of establishing an Acceptable Daily Intake (ADI) and 
Acceptable Operator Exposure Level (AOEL) having regard particularly to the results 
of  mutagenicity,  carcinogenicity  and  reproductive  studies  for  benomyl,  carbendazim 

OJ L 230, 19.8.1991, p. 1. Directive as last amended by Commission Directive … (OJ L …, …, p. …). 
OJ L 366, 15.12.1992, p. 10. Regulation as last amended by Regulation (EC) No 2266/2000 (OJ L 259, 
13.10.2000, p. 10). 
OJ  L  107,  28.4.1994,  p.  8.  Regulation  as  last  amended  by  Regulation  (EC)  No  2230/95  (OJ  L  225, 
22.9.1995, p. 1). 

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and  thiophanate-methyl.  The  Committee4  noted  that  carbendazim  is  the  biologically 
active  substance  common  to  these  three  substances.  Benomyl  in  particular,  but  also 
thiophanate-methyl,  is  metabolised  to  carbendazim  and  all  three  substances  produce 
numerical  chromosomal  aberrations  (aneuploidy)  in  mammalian  cells,  exposed  in 
vivo.  There  is  no  evidence  that  any  other  form  of  damage  to  genetic  material  is 
induced  by  any  of  these  substances.  Carcinogenicity  is  not  a  concern.  The  known 
effects  of  these  fungicides  upon  reproduction  are  explicable  by  interaction  with  the 
microtubules of the spindle apparatus. The mechanism of aneuploidy induction is well 
understood and consists of inhibition of polymerisation of tubulin, the protein that is 
essential for the segregation of chromosomes during cell division: it does not involve 
any  interaction  with  DNA.  Since  multiple  copies  of  tubulin  molecules  are  present  in 
proliferating  cells,  in  the  presence  of  low  concentration  of  the  fungicides  a  limited 
number  of  tubulin  molecules  will  be  affected  and  consequently  no  toxicologically 
adverse  effects  will  ensue.  Consequently,  a  clear  no  adverse  effect  level  is 
recognisable and both an ADI and an AOEL can be established. 

It  has  appeared  from  the  various  examinations  made  that  plant  protection  products 
containing  carbendazim  may  be  expected  to  satisfy  the  requirements  laid  down  in 
Article 5(1)(a) and (b) of Directive 91/414/EEC, with regard to the uses which were 
examined and detailed in the Commission review  report, provided  that adequate risk 
mitigation  measures  are  applied.  As  carbendazim  is  a  hazardous  substance,  its  use 
should  not  be  unrestricted.  In  particular,  there  are  concerns  about  its  intrinsic  toxic 
effects. Although there is scientific consensus on the hazards posed by carbendazim, 
there may be different views on the risks. This is a question of risk management rather 
than  science  which  depends  on  the  level  of  risk  which  is  acceptable  for  a  given 
society.  In  order  to  achieve  the  high  level of  protection  of  human  and  animal  health 
and  the  environment  chosen  in  the  Community,  risk  mitigation  measures  should  be 
imposed.  

Articles 5(4) and 6(1) of Directive 91/414/EEC provide that inclusion of a substance 
in Annex I may be subject to restrictions and conditions. In this case, restrictions on 
the inclusion period and on the authorised crops are measures deemed necessary. The 
restriction  of  the  inclusion  period  means  that  Member  States  will  give  priority  to 
reviewing plant protection products already on the market containing carbendazim. In 
order  to  avoid  discrepancies  in  the  high  level  of  protection  sought,  the  inclusion  in 
Annex  I  to  Directive  91/414/EEC  should  be  limited  to  the  uses  of  carbendazim  that 
have  been  actually  assessed  within  the  Community  evaluation  and  for  which  the 
proposed  uses  were  considered  to  comply  with  the  conditions  of  Directive 
91/414/EEC. This means that other uses, which were not or only partially covered by 
this assessment, must first be subject to a complete assessment, before their inclusion 
in Annex I of Directive 91/414/EEC can be considered. Finally, due to the hazardous 
nature  of  carbendazim,  it  is  necessary  to  provide  for  a  minimum  harmonisation  at 
Community level of certain risk mitigation measures that are to be applied by Member 
States when granting authorisations.  

(5) 

(6) 

4 

Opinion of the Scientific Committee on Plants (SCP/BENOMY/002 – final, SCP/CARBEN/002 – final, 
SCP/THIOPHAN/002  –  final  002)  dated  23  March  2001  regarding  the  evaluation  of  benomyl, 
carbendazim  and  thiophanate-methyl  in  the  context  of  Council  Directive  91/414/EEC  concerning  the 
placing  of  plant  protection  products  on  the  market  (Opinion  adopted  by  the  Scientific  Committee  on 
Plants on 7 March 2001). 

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(7) 

(8) 

The  risks  mitigation  measures  in  this  Directive  are  considered  sufficient  to  limit  the 
risks resulting from the use of the substance to an acceptable level. 

Since it appears possible to identify adequate risk mitigation measures, to be applied 
it  would  be 
within  well-described  situations  and  under  strict  conditions, 
disproportionate to refuse the inclusion of this active substance in Annex I to Directive 
91/414/EEC.  

(9)  Without  prejudice  to  the  conclusion  that  plant  protection  products  containing 
carbendazim may be expected to satisfy the requirements laid down in Article 5(1)(a) 
and  (b)  of  Directive  91/414/EEC,  it  is  appropriate  to  obtain  further  information  on 
certain specific points. Member States should require authorisation holders to provide 
information  on  the  use  of  carbendazim  including  any  information  on  incidences  on 
operator health. 

(10)  As  with  all  substances  included  in  Annex  I  to  Directive  91/414/EEC,  the  status  of 
carbendazim could be reviewed under Article 5(5) of that Directive in the light of any 
new data becoming available. 

(11)  The experience gained from previous inclusions in Annex I to Directive 91/414/EEC 
of active substances assessed in the framework of Regulation (EEC) No 3600/92 has 
shown  that  difficulties  can  arise  in  interpreting  the  duties  of  holders  of  existing 
authorisations  in  relation  to  access  to  data.  In  order  to  avoid  further  difficulties  it 
therefore appears necessary to clarify the duties of the Member States, especially the 
duty  to  verify  that  the  holder  of  an  authorisation  demonstrates  access  to  a  dossier 
satisfying  the  requirements  of  Annex  II  to  that  Directive.  However,  this  clarification 
does  not  impose  any  new  obligations  on  Member  States  or  holders  of  authorisations 
compared to the directives which have been adopted until now amending Annex I.  

(12)  A reasonable period should be allowed to elapse before an active substance is included 
in  Annex  I  in  order  to  permit  Member  States  and  the  interested  parties  to  prepare 
themselves to meet the new requirements which will result from the inclusion. 

(13)  Without  prejudice  to  the  obligations  defined  by  Directive  91/414/EEC  as  a 
consequence  of  including  an  active  substance  in  Annex  I,  Member  States  should  be 
allowed a period of 6 months after inclusion to review existing authorisations of plant 
protection products containing carbendazim to ensure that the requirements laid down 
by Directive 91/414/EEC, in particular in its Article 13 and the relevant conditions set 
out  in  Annex  I,  are  satisfied.  Member  States  should  vary,  replace  or  withdraw,  as 
appropriate,  existing  authorisations.  in  accordance  with  the  provisions  of  Directive 
91/414/EEC.  By  derogation  from  the  above  deadline,  a  longer  period  should  be 
provided for the submission and assessment of the complete Annex III dossier of each 
plant  protection  product  for  each  intended  use  in  accordance  with  the  uniform 
principles  laid  down  in  Directive  91/414/EEC.  Given  the  hazardous  properties  of 
carbendazim,  the  period  for  Member  States  to  verify  whether  the  plant  protection 
products, which contain carbendazim as the only active substances or in combination 
with  other  authorised  active  substances,  comply  with  the  provisions  of  Annex  VI 
should not exceed three years. 

(14) 

It is therefore appropriate to amend Directive 91/414/EEC accordingly. 

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(15)  The Standing Committee on the Food Chain and Animal Health has not delivered an 

opinion within the time-limit laid down by its Chairman. 

HAS ADOPTED THIS DIRECTIVE: 

Annex I to Directive 91/414/EEC is amended as set out in the Annex to this Directive. 

Article 1 

Article 2 

Member States shall adopt and publish by 30 June 2007 at the latest the laws, regulations and 
administrative  provisions  necessary  to  comply  with  this  Directive.  They  shall  forthwith 
communicate to the Commission the text of those provisions and a correlation table between 
those provisions and this Directive.  

They shall apply those provisions from 1 July 2007. 

When Member States adopt those provisions, they shall contain a reference to this Directive 
or be accompanied by such a reference on the occasion of their official publication. Member 
States shall determine how such reference is to be made. 

1. 

2. 

Article 3 

Member  States  shall  in  accordance  with  Directive  91/414/EEC,  where  necessary, 
amend  or  withdraw  existing  authorisations  for  plant  protection  products  containing 
carbendazim  as  an  active  substance  by  30  June  2007.  By  that  date  they  shall  in 
particular  verify  that  the  conditions  in  Annex  I  to  that  Directive  relating  to 
carbendazim  are  met,  with  the  exception  of  those  identified  in  part  B  of  the  entry 
concerning that active substance, and that the holder of the authorisation has, or has 
access  to,  a  dossier  satisfying  the  requirements  of  Annex  II  to  that  Directive  in 
accordance with the conditions of Article 13. 

By  derogation  from  paragraph  1,  for  each  authorised  plant  protection  product 
containing carbendazim, Member States shall re-evaluate the product in accordance 
with the uniform principles  provided  for  in Annex VI  to Directive 91/414/EEC,  on 
the basis of a dossier satisfying the requirements of Annex III to that Directive and 
taking  into  account  part  B  of  the  entry  in  Annex  I  to  that  Directive  concerning 
carbendazim.  On  the  basis  of  that  evaluation,  they  shall  determine  whether  the 
product satisfies the conditions set out in Article 4(1)(b), (c), (d) and (e) of Directive 
91/414/EEC. 

Following 
carbendazim,  where  necessary,  amend  or  withdraw 
31 December 2009. 

that  determination  Member  States  shall  for  products  containing 
the  authorisation  by 

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This Directive shall enter into force on 1 January 2007. 

Article 4 

Article 5 

This Directive is addressed to the Member States. 

Done at Brussels, 

For the Council 
The President 

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The following entries shall be added at the end of the table in Annex I to Directive 91/414/EEC: 

ANNEX 

“No 

Common Name, 
Identification 
Numbers 

XX  Carbendazim 

(unstated 
stereochemistry) 
CAS N° 10605-21-7 
CIPAC N° 263 

IUPAC Name 

Purity5 

Entry into 
force 

Expiration 
of inclusion 

Specific provisions 

Methyl benzimidazol-2-
ylcarbamate  

980 g/kg  

1 January 
2007 

31 December 
2013 

PART A 

Only  uses  as  fungicide  on  the  following  crops  may  be 
authorised: 

– 

– 

– 

– 

cereals 

rape seed 

sugarbeet 

maize 

at rates not exceeding 

– 

– 

– 

0,25  kg  active  substance  per  hectare  per 
application for cereals and rape seed; 

0,075  kg  active  substance  per  hectare  per 
application for sugarbeet 

0,1  kg  active  substance  per  hectare  per 
application for maize. 

The following uses must not be authorised :  

– 

– 

– 

air application; 

knapsack and handheld applications neither by 
amateur nor by professional users; 

home gardening. 

5 

Further details on identity and specification of active substance are provided in the review report. 

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“No 

Common Name, 
Identification 
Numbers 

IUPAC Name 

Purity5 

Entry into 
force 

Expiration 
of inclusion 

Specific provisions 

Member  States  shall  ensure  that  all  appropriate  risk 
mitigation  measures  are  applied.  Particular  attention  must 
be paid to the protection of: 

– 

– 

– 

– 

aquatic organisms. An appropriate distance must 
be kept between treated areas and surface water 
the 
bodies.  This  distance  may  depend  of 
application  or  not  of  drift  reducing  techniques 
or devices; 

earthworms  and  other  soil  macro-organisms. 
Conditions  of  authorisation  shall  include  risk 
mitigation  measures,  such  as  the  selection  of 
the  most  appropriate  combination  of  numbers 
and timing of application, rates of application, 
and,  if  necessary,  the  degree  of  concentration 
of the active substance; 

and  mammals.  Conditions 

of 
birds 
authorisation  shall 
include  risk  mitigation 
measures,  such  as  a  judicious  timing  of  the 
those 
the 
application  and 
formulations  which,  as  a  result  of 
their 
physical presentation or the presence of agents 
that  ensure  an  adequate  avoidance,  minimise 
the exposure of the concerned species; 

selection  of 

operators,  who  must  wear  suitable  protective 
clothing,  in  particular  gloves,  coveralls,  rubber 
boots  and  face  protection  or  safety  glasses 
during mixing, loading, application and cleaning 
of  the  equipment,  unless  the  exposure  to  the 
substance is adequately precluded by the design 
and construction of the equipment itself or by the 
mounting  of  specific  protective  components  on 
such equipment. 

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“No 

Common Name, 
Identification 
Numbers 

IUPAC Name 

Purity5 

Entry into 
force 

Expiration 
of inclusion 

Specific provisions 

PART B 

For  the  implementation  of  the  uniform  principles  of 
Annex  VI,  the  conclusions  of  the  review  report  on 
carbendazim,  and  in  particular  Appendices  I  and  II 
thereof, shall be taken into account.  

Member States must ensure that the authorisation holders 
report  at  the  latest  on  31  December  of  each  year  on 
incidences  of  operator  health  problems.  Member  States 
may require that elements, such as sales data and a survey 
of use patterns, are provided so that a realistic picture of 
the  use  conditions  and  the  possible  toxicological  impact 
of carbendazim can be obtained.”  

” 

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