Communication from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions - A thematic strategy on the sustainable use of pesticides {COM(2006) 373 final} {SEC(2006) 894} {SEC(2006) 895} {SEC(2006) 914}
Date: 2006-07-12
Institutions: European Commission
Subjects: drafting of EU law, environmental protection, pesticide, pollution control measures, pollution from agricultural sources, prevention of pollution

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 12.7.2006 
COM(2006) 372 final 

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

A Thematic Strategy on the Sustainable Use of Pesticides 

{COM(2006) 373 final} 
{SEC(2006) 894} 
{SEC(2006) 895} 
{SEC(2006) 914} 

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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 

A Thematic Strategy on the Sustainable Use of Pesticides 

(Text with EEA relevance) 

TABLE OF CONTENTS 

1. 

1.1. 

1.2. 

1.3. 

2. 

3. 

4. 

4.1. 

4.2. 

4.3. 

5. 

6. 

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

Description of the environmental problem .................................................................. 3 

Current legal framework .............................................................................................. 3 

The process for launching the Thematic Strategy........................................................ 4 

Assessment of the situation.......................................................................................... 5 

Objectives of the Thematic Strategy ..............................................................................  

Actions and Means: measures constituting the Thematic strategy .............................. 7 

New measures that cannot be integrated into existing instruments ............................. 8 

Measures that can best be integrated in existing instruments ...................................... 9 

Measures/actions that are currently not proposed to be part of the Thematic 
Strategy, but could be examined again at a later stage .............................................. 11 

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

Next steps ................................................................................................................... 12 

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1. 

INTRODUCTION 

1.1. 

Description of the environmental problem 

Mainly  comprised  of  plant  protection  products  (PPP)1  and  biocidal  products,  pesticides  are 
designed  to  influence  fundamental  processes  in  living  organisms  and  thus  may  have  the 
potential to kill or control harmful organisms such as pests. At the same time, they can cause 
unwanted  adverse  effects  on  non-target  organisms,  human  health  and  the  environment.  The 
possible risks associated with their use are accepted to a certain extent by society given the 
related  economic  benefits  since  inter  alia  plant  protection  products  contribute  to  ensuring 
reliable supplies of affordable and healthy agricultural products of high quality. 

Pesticides have been regulated for a long time in most Member States and the Community2. 
Over  the  years,  a  highly  developed  system  has  been  established  for  evaluating  the  risks  to 
human health and the environment from pesticide use. 

Despite all the efforts that have been made to limit the risks linked to the use of pesticides and 
to prevent any undesirable effects, unwanted amounts of certain pesticides can still be found 
in  environmental  media  (in  particular  soil  and  water)3  and  residues  exceeding  regulatory 
limits still occur in agricultural produce4. 

It is, therefore, necessary to reduce the risks from pesticides to humans and the environment 
as far as possible by minimising or eliminating, where possible, exposure and by encouraging 
the research and development of less harmful, including non-chemical, alternatives. 

1.2. 

Current legal framework 

In adopting the 6th Environment Action Programme (6thEAP)5, the European Parliament and 
the Council recognised that the impact of pesticides on human health and the environment, in 
particular from plant protection products, must be further reduced. They underlined the need 
to  achieve  a  more  sustainable  use  of  pesticides  as  well  as  a  significant  overall  reduction  in 
risks and of the use of pesticides consistent with the necessary crop protection. 

Therefore, the 6thEAP outlines a two-track approach: 

1. 

2. 

Full implementation and revision of the relevant legal framework6 

Development of a Thematic Strategy on the Sustainable Use of Pesticides 

The  Community  regulatory  framework  concerning  pesticides  focuses  particularly  on  the 
placing on the market and the end of the life cycle of such products. 

1 
2 
3 
4 

5 

6 

For definitions please refer to the Technical Annex to this Communication. 
Earliest Community Directives regulating plant protection products go back to 1979. 
EUREAU Position Paper ‘Keeping Raw Drinking Water Resources Safe from Pesticides’, 2001. 
Reports are available at: 
http://europa.eu.int/comm/food/fs/inspections/fnaoi/reports/annual_eu/index_en.html 
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). 
In the 6EAP, reference is made exclusively to the legal framework concerning plant protection products 

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The most relevant legislative measures concerning PPP are: 

1. 

Directive 91/414/EEC on the placing of plant protection products on the market7, and 

Regulation  (EC)  No  396/2005  on  maximum  residue  levels  of  pesticides  in  food  and 

2. 
feed8. 

The aim of Directive 91/414/EEC is to prevent risks at source through a very comprehensive 
risk  assessment  for  each  active  substance  and  the  products  containing  that  substance  before 
they can be authorised for use. Granting an authorisation to a PPP for certain uses therefore 
means that it has been demonstrated that, under normal conditions of use, these uses bear no 
unacceptable effects on human and animal health, and the environment. Regulation (EC) No 
396/2005  sets  maximum  residue  levels  (MRL)  of  active  substances  in  plant  and  animal 
produce,  with  the  aim  of  limiting  the  exposure  of  consumers  at  the  end  of  the  food  chain. 
Monitoring  compliance  with  MRLs  is  also  an  important  tool  to  assess  whether  professional 
users  in  the  EU  (e.g.  farmers)  have  correctly  applied  the  recommendations  and  restrictions 
outlined in the authorisations of plant protection products granted by the Member States. 

A similar system of assessment for biocidal products has been introduced through Directive 
98/8/EC9, which obliged many Member States to introduce legislation on biocides for the first 
time. 

One of the shortcomings of the existing legal framework is that the actual use phase, which is 
a  key  element  for  the  determination  of  the  overall  risks  that  pesticides  pose,  is  barely 
addressed  in  the  existing  legislation.  Therefore,  the  Thematic  Strategy  proposes  measures 
aiming at correcting this deficiency, in order to create a coherent and consistent overall policy 
framework. 

1.3. 

The process for launching the Thematic Strategy 

In accordance with the 6EAP, Thematic Strategies are to be developed in a two-step process 
involving  all  stakeholders.  In  its  Communication  ‘Towards  a  Thematic  Strategy  on  the 
Sustainable  Use  of  Pesticides’  of  July  2002,  the  Commission  launched  a  wide  ranging 
consultation exercise10. 

The  Communication  noted,  on  the  basis  of  preliminary  studies,  the  shortcomings  of  the 
current legislative framework with regard to the use-phase in the life-cycle of pesticides. The 
Communication included extensive background information on the benefits and risks of using 
pesticides  (which  are  discussed  in  the  impact  assessment  submitted  in  parallel  with  this 
Communication),  presented  a  list  of  essential  points  to  be  addressed  and  discussed  possible 
measures to address the use-phase and to reverse negative trends. 

The consultation encompassed the European Parliament, the Council, the European Economic 
and  Social  Committee,  the  Committee  of  the  Regions,  industry,  consumer  and  farmer 

7 
8 

9 
10 

OJ L 230, 19.8.1991, p. 1. 
Regulation (EC) No 396/2005 of the European Parliament and of the Council of 23 February 2005 on 
maximum  residue  levels  of  pesticides  in  or  on  food  and  feed  of  plant  and  animal  origin  (OJ  L  70, 
16.3.2005, p. 1). 
OJ L 123, 24. 4. 1998, p. 1. 
COM(2002) 349. 

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organisations and the general public. Comments were received from more than 150 different 
stakeholders11.  In  addition,  the  Commission  held  on  4  November  2002  a  conference  with 
more  than  190  participants  representing  all  stakeholder  groups12.  Further  consultations  took 
place  through  Commission  participation  in  various  conferences  on  specific  issues  (e.g. 
comparative  assessment/  substitution  principle,  application  equipment,  IPM/ICM13)  and 
through  meetings  organised  by  the  Commission  (e.g.  on  aerial  spraying).  In  addition,  the 
Commission launched a further open consultation over the internet and received almost 1 800 
responses14. 

The  objectives  of  the  proposed  strategy  and  many  of  the  possible  measures  were  broadly 
supported. A more detailed summary of the consultation process can be found in the impact 
assessment15. 

2. 

ASSESSMENT OF THE SITUATION 

Because of the direct benefits that their use generates (in particular for farmers), pesticides are 
employed on a large scale and generally considered as essential in modern cropping systems. 
Among  them,  plant  protection  products  contribute  to  maximising  agricultural  yields  and 
minimising labour input. 

Despite  the  existing  policies  and  legislation  aimed  at  protecting  human  health  and  the 
environment,  actual  consumption  and  use  of  plant  protection  products  in  the  EU  has  not 
decreased between 1992 and 2003, as can be seen from the available statistical information16. 

400.000
350.000

300.000

250.000

200.000

150.000

100.000

50.000

0

1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003

Fungicides Herbicides

Insecticides Others

Figure 1: Sales of PPP active substances (in tonnes) in EU-15 

11 
12 

13 
14 
15 

16 

Opinions submitted are available at: http://www.europa.eu.int/comm/environment/ppps/home.htm 
Conference documents and proceedings available at: 
http://europa.eu.int/comm/environment/ppps/home.htm 
Integrated Pest Management / Integrated Crop Management. 
The results are available at: http://europa.eu.int/comm/environment/ppps/pdf/stats_consult.pdf 
Report  on  The  Impact  Assessment  of  the  Thematic  Strategy  on  the  Sustainable  Use  of  Pesticides, 
Commission Staff Working Paper SEC(2006) 894. 
Data given by Eurostat and European Crop Protection Association. 

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The  percentage  of  food  and  feed  samples,  in  which  unwanted  residues  of  pesticides  exceed 
maximum regulatory limits has not declined between 1996 and 2003: it has slightly increased 
to remain at around 5%, as shown by the ongoing monitoring activities of the Member States 
and the Commission17. 

Figure 2: Results of inspections for residues of pesticides in fruits, vegetables and cereals 
in EU-15 

3. 

OBJECTIVES OF THE THEMATIC STRATEGY 

Increasing awareness of consumers and society at large about the possible risks from the use 
of pesticides has recently triggered actions by certain retailers and governments, as well as the 
Community,  to  support  forms  of  agriculture  and  pest  management  methods  that  restrict  or 
better  target  the  use  of  plant  protection  products,  such  as  organic  farming,  integrated  pest 
management,  or  the  use  of  less  susceptible  varieties.  It  is  important  to  encourage  a  rational 
and precise pesticide use, as well as appropriate crop and soil management practices.  

Furthermore,  it  will  be  important  to  improve  the  behaviour  of  pesticide  users  (in  particular 
professional  users),  who  are  responsible  for  a  number  of  misuses  including  overuses,  by 
ensuring better training and education. 

Improvement of the quality and efficacy of pesticide application equipment is also necessary 
to enable pesticide users to optimise the effectiveness of the treatments whilst minimising any 
adverse impact on human health and the environment. 

17 

Reports available at:  
http://europa.eu.int/comm/food/fs/inspections/fnaoi/reports/pesticides/index_en.html 

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Furthermore, the use of pesticides is affected – directly or indirectly – by legislation in other 
policy  areas,  such  as  water  policy,  agricultural  policy,  worker  protection  and  research.  The 
Thematic  Strategy  will  allow  the  development  of  a  horizontal  and  cross-cutting  approach, 
well beyond the relatively limited scope of these specific legal instruments. 

The  specific  objectives  of  the  Thematic  Strategy  that  would  contribute  to  achieving  the 
overall objectives are: 

(a) 

(b) 

(c) 

(d) 

(e) 

to  minimise  the  hazards  and  risks  to  health  and  environment  from  the  use  of 
pesticides; 

to improve controls on the use and distribution of pesticides; 

to reduce the levels of harmful active substances including through substituting the 
most dangerous with safer (including non-chemical) alternatives; 

to  encourage  low-input  or  pesticide-free  cultivation,  among  others  through  raising 
users’  awareness,  promoting  the  use  of  codes  of  good  practices  and  promoting 
consideration of the possible application of financial instruments; 

to establish a transparent system for reporting and monitoring progress made in the 
fulfilling  of  the  objectives  of  the  strategy,  including  the  development  of  suitable 
indicators. 

The effects of the legislation on biocides will not become apparent until after 2006, when the 
first  evaluations  of  active  substances  for  use  in  biocidal  products  are  finalised.  At  present, 
neither the Commission nor most Member States have sufficient knowledge or experience to 
propose  further  measures  regarding  biocides.  This  situation  should  be  re-examined  in  the 
course of 2007, with a view to considering possible measures. 

Therefore,  based  on  the  objectives  laid  down  in  the  6th  EAP  and  bearing  in  mind  that  plant 
protection products constitute the most important group of pesticides, the Thematic Strategy 
on  the  Sustainable  Use  of  Pesticides  focuses  only  on  such  products  for  the  time  being. 
However,  the  scope  of  the  Thematic  Strategy  might  be  expanded  in  the  future,  if  similar 
measures were considered necessary for biocides. 

4. 

ACTIONS AND MEANS: MEASURES CONSTITUTING THE THEMATIC STRATEGY 

The  Thematic  Strategy  on  the  Sustainable  Use  of  Pesticides  is  composed  of  a  number  of 
individual measures, the impacts of which have been assessed from economic, social, health 
and  environmental  points  of  view.  In  accordance  with  the  holistic  concept  of  Thematic 
Strategies to integrate new measures as far as possible in existing instruments, this approach 
is proposed for several measures. The other measures are proposed in new legislation, which 
will be presented in parallel to this Communication. 

The following chapters briefly present the measures that are part of the Thematic Strategy and 
those  measures  that  were  considered,  but  are  not  proposed  at  this  stage.  More  details  are 
contained  in  the  “Technical  Annex  to  the  Communication  on  the  Thematic  Strategy  on  the 

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Sustainable Use of Pesticides”18, and in the impact assessment, which provides rationales for 
the measures proposed. All these documents are closely linked and should be read together. 

4.1. 

New measures that cannot be integrated into existing instruments 

The  following  measures  of  the  Thematic  Strategy  will  be  included  in  a  new  Framework 
Directive of the European Parliament and the Council, which the Commission is proposing in 
parallel to this Communication: 

–  Establishment  of  National  Action  Plans  by  the  Member  States  which  will  have  to  set 
individual objectives to reduce hazards, risks and dependence on chemical control for plant 
protection (National Action Plans - NAP). 

–  Involvement of stakeholders in the setting up, implementation and adaptation of the NAP. 
The  detailed  arrangements  for  public  participation,  and  the  level  at  which  this  will  be 
organised, should be determined by the Member States so as to give the public early and 
effective opportunities to participate in the process. 

–  Creation  of  a  system  of  training  of  professional  pesticide  users  in  order  to  ensure  that 
those who regularly use pesticides are fully aware of the risks linked to this use and take all 
appropriate  measures  to  find  the  least  harmful  means  for  solving  a  plant  protection 
problem. This system will include guidance for users on the best choices to make among 
different products available for the same treatment (substitution at user's level). 

–  Awareness raising of the general public (with particular attention to non-professional users 
of  pesticides)  through  awareness  raising  campaigns  and  information  passed  on  through 
retailers to ensure that it is better informed. 

–  Regular and compulsory inspection of application equipment in order to reduce adverse 
impacts of pesticides on human health (in particular as regards operator exposure) and the 
environment during application, and to ensure the most efficient use by guaranteeing the 
actual quantity applied equals the preset dosage. 

–  Prohibition of aerial spraying to limit the risks of significant adverse impacts on human 
health and the environment, in particular from spray drift. Aerial spraying should only be 
used by way of derogation where it offers clear advantages and also environmental benefits 
compared to other spraying methods, or where there are no viable alternatives. Conditions 
for  such  derogations  have  to  be  established  in  order  to  minimise  the  risks  of  unwanted 
effects,  e.g.  through  appropriate  requirements  for  training  of  operators  and  standards  of 
application equipment. 

–  Enhanced  protection  of  the  aquatic  environment  from  pollution  by  pesticides  to 
contribute to the achievement of the objectives of the Water Framework Directive (Articles 
7(3), 11 and 16 of the Water Framework Directive19). 

–  Defining areas of significantly reduced or zero pesticide use in coherence with measures 
taken under other legislation (e.g. Articles 6, 10 and 12 of the Directive on Habitats20 and 

18 
19 

SEC(2006) 895. 
Directive 2000/60/EC of the European Parliament and the Council of 23 October 2000 establishing a 
framework for Community action in the field of water policy (OJ L 327, 22.12.2000, p. 1). 

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Articles  3  and  4(4)  of  the  Birds  Directive21).  Such  areas  should  also  be  designated  to 
address high risks of exposure of the general public and the specific protection needed by 
vulnerable groups such as children. 

–  Handling  and  storage  of  packaging  and  remnants  of  pesticides  and  other  measures 
connected  to  the  handling  of  products  in  order  to  avoid  that  they  are  stored  or  handled 
carelessly and possibly pollute the environment. 

–  Promotion  of  low  pesticide-input  farming  and  creation  by  Member  States  of  necessary 
conditions  for  implementation  of  Integrated  Pest  Management  (IPM)  by  farmers. 
Community-wide  standards  of Integrated Pest Management (IPM) will be developed and 
become mandatory as from 2014. Crop-specific standards for IPM will also be developed 
at  Community  level,  but  their  implementation  will  remain  voluntary,  and  Member  States 
could support this activity under rural development. 

–  Measuring  progress  in  risk  reduction  through  appropriate  harmonised  indicators,  which 
will  be  made  binding  for  all  Member  States  for  regular  reporting.  A  set  of  possible  risk 
indicators  is  currently  under  development  in  a  project  supported  under  the  6th  RTD 
Framework Programme (HAIR22). These indicators should become the common indicators 
to be used in all Member States – possibly combined with other already existing indicators. 

–  Establishment  of  a  system  of  information  exchange  at  Community  level  –  a  Thematic 
Strategy Expert Group – involving the Member States and all other relevant stakeholders 
in  order  continuously  to  develop  and  update  appropriate  guidance,  best  practices,  and 
recommendations. 

In addition, the Commission will incorporate the following measures of the Thematic Strategy 
into two separate proposals to be adopted at the latest by 2008: 

–  Improved  systems  for  the  collection  of  information  on  distribution  and  use  of  plant 
protection  products,  at  the  level  of  active  substances,  and  regular  reporting  to  tackle  the 
lack of reliable data in particular with a view to the calculation of risk indicators; 

–  Essential  requirements  for  the  protection  of  the  environment  to  be  satisfied  by  new 

pesticide application equipment to be placed on the market. 

4.2.  Measures that can best be integrated in existing instruments 

The following measures of the Thematic Strategy are to be integrated in existing instruments: 

–  Improved systems for monitoring compliance with the legal requirements concerning the 
distribution  and  use  of  plant  protection  products  through  a  substantial  amendment  of  the 
current  Article  17  of  Directive  91/414/EEC.  This  is  also  relevant  in  view  of  the  cross-
compliance requirements for direct payments under the CAP, which has included Directive 

20 

21 

22 

Directive 92/43/EEC of the Council of 21 May 1992 on the conservation of natural habitats and of wild 
fauna and flora (OJ L 206, 22.7.1992, p. 7). 
Directive  79/409/EEC  of  the  Council  of  2  April  1979  on  the  conservation  of  wild  birds  (OJ  L  103, 
25.4.1979, p. 1). 
Harmonised Environmental Indicators for Pesticide Risks (HAIR): 
http://www.rivm.nl/stoffen-risico/NL/hair.htm 

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91/414/EEC  (Article  3)  since  200623.  Member  States  will  also  be  required  to  report  on 
poisoning  incidents  involving  pesticides  for  operators,  bystanders,  residents,  consumers, 
and wildlife. 

–  Integration of comparative assessment and the substitution principle in the assessment of 
active  substances  and  in  decision-making  for  inclusion  in  Annex  I  of  Directive 
91/414/EEC (such a process already exists under Directive 98/8/EC for biocidal products), 
and in the authorisation of plant protection products at Member State level. 

–  Reinforcement of annual monitoring programmes on residues of pesticides in food and 
feed 
(MRLs), 
complemented  by  epidemiological  exposure  studies  in  the  framework  of  the  European 
Environment and Health Strategy. 

the  Regulation  on  setting  Maximum  Residue  Levels24 

through 

–  Environmental  monitoring:  determination  of  pesticide  concentrations  in  environmental 
compartments,  as  a  means  to  verify  model  calculations  and  predictions  during  risk 
assessment and compliance of users with restrictions and label instructions. Monitoring of 
pesticides in water is provided for in the Water Framework Directive. 

–  Research on pesticides within the 6th and the 7th Community Framework Programmes for 
Research25, with the objective of improving the health and well-being of European citizens 
through  higher  quality  food  and  improved  control  of  food  production  and  related 
environmental  factors,  as  well  as  facilitating  risk  assessment  at  farm  level  (e.g. 
identification  of  risky  areas  or  practices).  This  includes  the  financing  of  projects  that 
examine in particular the development of alternatives to chemical pest control. The effects 
of  pesticides  on  biodiversity  and  how  to  reduce  them  can  be  investigated  under  the 
thematic activities within the Co-operation Programme of Framework Programme 726. 

–  Invitation to Member States to apply normal VAT rates to pesticides in order to reduce the 
incentive  for  illegal  cross  border  exchange  of  non-authorised  products  due  to  price 
differentials. 

–  In  the  international  arena,  the  Community  and  the  Member  States  have  ratified  and 
implement the Rotterdam Convention on Prior Informed Consent (PIC) and the Stockholm 
Convention  on  Persistent  Organic  Pollutants  (POPs).  They  also  provide  financial  and 
technical assistance (capacity building) in numerous bilateral and multilateral programmes 
(including  the  Strategic  Approach  for  International  Chemicals  Management,  SAICM, 
adopted in February 2006), which contribute to the safe handling and disposal of pesticides 
(including  obsolete  stocks  of  pesticides).  The  Community  acknowledges  that  health  and 
environmental  risks  deriving  from  the  use  of  pesticides  are  particularly  worrying  in 
developing countries and countries in transition. 

23 

24 
25 
26 

Council  Regulation  (EC)  No  1782/2003  of  29  September  2003  establishing  common  rules  for  direct 
support  schemes  under  the  common  agricultural  policy  and  establishing  certain  support  schemes  for 
farmers (OJ L 270, 21.10.2003, p. 1). 
See footnote No 8. 
Relevant information on FP6 available at: http://www.europa.eu.int/comm/research/fp6/index_en.html 
More information is available at: http://ec.europa.eu/research/fp7/ 

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4.3.  Measures/actions  that  are  currently  not  proposed  to  be  part  of  the  Thematic 

Strategy, but could be examined again at a later stage 

The  following  measures/actions,  after  having  been  discussed  during  the  consultation  phase 
and evaluated in the impact assessment, will not be proposed as part of the Thematic Strategy 
at this stage. They could be considered later in the light of the results of the proposed strategy, 
which  will  be  examined  under  the  review  mechanism  foreseen  in  the  draft  Framework 
Directive. 

–  Definition  of  quantitative  use  reduction  targets.  There  is  no  systematic  and  direct  link 
between the overall reduction of the quantities of pesticides used and the risks involved. In 
addition,  there  is  no  adequate  information  about  baseline  consumption,  which  could  be 
used  as  reference,  and  there  are  a  number  of  legal  questions  about  enforcement  and 
liability.  The  Strategy  will,  therefore,  not  propose  legally  binding  reduction  targets,  thus 
being in line with Member States policy. 

–  Setting-up of a system of taxes/levies to influence qualitatively pesticide use. At this point 
in  time,  it  will  be  virtually  impossible  to  devise  an  efficient  and  manageable  system  of 
taxes/levies  that  would  reflect  adverse  effects  of  individual  pesticides.  Member  States 
could explore introducing ‘banded’ systems (flat rate systems are currently applied in some 
Member States), adapted to their specific situations and the protection objectives they wish 
to pursue. 

5. 

EXPECTED RESULTS AND IMPACTS 

The  most  important  expected  outcome  of  the  implementation  of  this  Thematic  Strategy  is  a 
reduction of the overall risks and negative impacts on human health and the environment from 
the use of pesticides. Such a reduction can be achieved by reducing unwanted exposure (direct 
and  indirect),  and  by  reducing  the  intrinsic  hazards  of  the  substances  used  by  replacing  the 
more  dangerous  ones  with  less  harmful  ones  (the  so-called  "substitution  principle")  or 
alternative protection measures. Currently, no universally accepted indicators are available to 
measure these risks. 

Better  knowledge  of  actual  pesticide  use  will  be the  key  input  to  calculate  risk  indicators  – 
relevant  information  gathering  systems  have  to  be  set  up  quickly  to  allow  calculation  of 
indicators  and  the  trends  in  their  development  (also  retrospectively).  Overall  it  is  expected 
that,  as  a  consequence  of  the  Thematic  Strategy,  knowledge  about  use  of  pesticides  will 
greatly increase, a set of relevant risk indicators will be developed, and that these will show 
decreasing trends over time. 

Although not directly linked to the reduction of actual risks, it is also expected that the overall 
use of pesticides will show a declining trend as a consequence of the implementation of low 
pesticide-input  farming  practices  (inter  alia  Integrated  Pest  Management,  organic  farming) 
and  the  designation  of  zones  with  reduced  or  zero  pesticide  use.  Better  trained  users  with 
optimal application equipment will use pesticides more efficiently and will reduce losses into 
the  environment  (in  particular  the  aquatic  environment).  The  percentage  of  land  cultivated 
with reduced or low pesticide-input cropping systems, such as integrated production, should 
increase. 

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It is also expected that, as a result of the Thematic Strategy, the percentage of food and feed 
samples  monitored  in  the  Member  States  where  MRLs  are  exceeded  will  decline. 
Furthermore, poisoning incidents involving humans or wildlife should decrease. 

For none of these trends is it possible to formulate quantitative targets, as often the necessary 
baseline information is missing or there are too many factors involved to predict quantitative 
effects  in  a  reliable  way.  The  impact  assessment  proves  nevertheless  that  the  net  expected 
overall impact is clearly positive. 

6. 

NEXT STEPS 

In  addition  to  the  adoption  of  this  Communication,  the  Technical  Annex  thereto,  and  the 
related impact assessment, the Commission has already adopted, or will in the future adopt, 
the following: 

–  a  proposal  for  a  Directive  of  the  European  Parliament  and  the  Council  establishing  a 
framework  for  Community  action  to  achieve  a  sustainable  use  of  pesticides,  which  will 
contain the necessary new legislative measures described in Chapter 4.1; 

–  a proposal for a Regulation of the European Parliament and the Council revising Directive 
91/414/EEC,  which  will  incorporate,  inter  alia,  the  necessary  measures  regarding 
enhanced compliance monitoring and comparative assessment; 

–  a  proposal  for  a  Regulation  of  the  European  Parliament  and  the  Council  concerning 

statistics on plant protection products; 

–  a  proposal  for  a  Directive  of  the  European  Parliament  and  the  Council  laying  down 
essential  environmental  protection  requirements  for  the  placing  on  the  market  of  new 
pesticide  application  equipment  and  accessories,  possibly  within  the  framework  of 
Directive 2006/42/EC27; 

–  a proposal to the European Parliament and the Council on environmental quality standards 

in the field of water policy including such standards for certain pesticides; 

–  This  new  legislation  will  complement  a  Communication  to  the  Council,  the  European 
Parliament  and  the  European  Economic  and  Social  Committee  on  the  European 
Environment  &  Health  Action  Plan,  which,  inter  alia,  contains  the  necessary  actions  to 
develop integrated information on exposure of humans to pesticides and the consequences 
thereof28. 

Efforts  to  reduce  the  risks  from  pesticides  are  continuously  evolving  and  will  have  to  be 
regularly reviewed. Also, as many of the measures constituting the Thematic Strategy require 
a sufficient degree of subsidiarity, it will be necessary (i) to exchange information among the 
Member  States  about  their  national  action  plans  and  the  precise  solutions  that  they  have 
found, and (ii) to develop all necessary guidance and best practices. 

27 

28 

Directive 2006/42/EC of the European Parliament and of the Council of 17 May 2006 on machinery, 
and amending Directive 95/16/EC (recast) (OJ L 157, 9.6.2006, p. 24). 
COM(2004) 416. 

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The  draft  framework  Directive  will  therefore  establish  a  consultative  forum,  the  Thematic 
Strategy  Expert  Group,  to  develop  guidance  on  best  practices  and  monitor  the 
implementation of the measures proposed in the Thematic Strategy. 

In the light of the outcome of this information exchange and the deliberations of the Thematic 
Strategy  Expert  Group,  the  proposed  measures  will  be  regularly  reviewed  and  adapted  to 
technical progress. 

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