Proposal for a DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL on a General Union Environment Action Programme to 2020 "Living well, within the limits of our planet"
Date: 2012-11-29
Institutions: European Commission
Subjects: EU programme, access to EU information, biodiversity, economic growth, environmental impact, environmental protection, investment, management of resources, pollution control, principle of subsidiarity

EUROPEAN 
COMMISSION 

Brussels, 29.11.2012  
COM(2012) 710 final 

2012/0337 (COD) 

Proposal for a 

DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

on a General Union Environment Action Programme to 2020 

"Living well, within the limits of our planet" 

(Text with EEA relevance) 

{SWD(2012) 397 final} 
{SWD(2012) 398 final} 

EN 

   EN 

 
 
 
  
 
EXPLANATORY MEMORANDUM 

1. 

CONTEXT OF THE PROPOSAL 

Environment  Action  Programmes  (EAP)  have  guided  the  development  of  EU 
environment policy since the early 1970s. In line with the Treaty, EAPs are adopted 
under  the  ordinary  legislative  procedure.  The  6th  EAP  expired  in  July  2012;  the 
European  Commission,  in  response  to  demand  from  stakeholders,  including  the 
Council and the European Parliament, is proposing a successor programme. 

The context of this proposal is fourfold. First, despite progress in some areas, major 
environmental challenges remain, as well as opportunities to make the environment 
more resilient to systemic risks and change. Second, the EU has adopted the Europe 
2020  Strategy  for  Smart,  Sustainable  and  Inclusive  Growth,  which  guides  policy 
development  for  the  period  up  to  2020.  Third,  while  many  Member  States  are 
struggling  to  cope  with  the  economic  crisis,  the  need  for  structural  reforms  offers 
new opportunities for the EU to move towards an inclusive green economy. Finally, 
Rio+20 highlighted the importance of the global dimension. 

This  EAP  aims  to  step  up  the  contribution  of  environment  policy  to  the  transition 
towards  a  resource-efficient,  low-carbon  economy  in  which  natural  capital  is 
protected and enhanced, and the health and well-being of citizens is safeguarded. The 
programme  provides  an  overarching  framework  for  environment  policy  to  2020, 
identifying nine priority objectives for the EU and its Member States to attain. 

Responsibility for achieving environment and climate-related goals and objectives is 
shared by the EU and its Member States. The programme should be implemented at 
the appropriate level, in line with the principle of subsidiarity. 

2. 

RESULTS OF CONSULTATIONS WITH THE INTERESTED PARTIES AND 
IMPACT ASSESSMENTS 

In preparing this proposal, the Commission carried out an impact assessment taking 
into account the views expressed by the other EU institutions, as well as by a broad 
range  of  stakeholders.  It  also  drew  on  a  number  of  studies  and  evaluations.  The 
assessment  found  that  the  proposal  would  add  value  in  a  number  of  ways:  by 
providing  a  strategic  framework  for  environmental  policy  in  the  EU;  by  ensuring 
complementarity and coherence; by ensuring predictability and a level playing field; 
and  by  stimulating  action  at  all  levels  of  governance.  The  views  expressed  by  a 
majority  of  stakeholders  support  these  findings  and  the  proposed  focus  of  the 
programme. 

3. 

LEGAL ELEMENTS OF THE PROPOSAL 

This proposal for a Decision of the European Parliament and of the Council on a new 
General Union Environment Action Programme to 2020 is based on Article 192 (3) 
TFEU.  

EN 

2 

   EN 

4. 

BUDGETARY IMPLICATION 

The programme in this proposal for a Decision has been developed in line with the 
Commission proposal for the EU Multiannual Financial Framework 2014-2020. 

EN 

3 

   EN 

2012/0337 (COD) 

Proposal for a 

DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

on a General Union Environment Action Programme to 2020 

"Living well, within the limits of our planet" 

(Text with EEA relevance) 

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Article 192(3) thereof, 

Having regard to the proposal from the European Commission, 

After transmission of the draft legislative act to the national Parliaments, 

Having regard to the opinion of the European Economic and Social Committee1, 

Having regard to the opinion of the Committee of the Regions2, 

Acting in accordance with the ordinary legislative procedure, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

1 
2 
3 

The  Union  has  set  itself  the  objective  to  become  a  smart,  sustainable  and  inclusive 
economy  by  2020  with  a  set  of  policies  and  actions  towards  a  low-carbon  and 
resource-efficient economy3.  

Successive  environment  action  programmes  have  provided  the  framework  for  Union 
action in the field of environment since 1973.  

The Sixth Community Environment Action Programme (6th EAP) ended in July 2012, 
but  many  measures  and  actions  launched  under  that  programme  continue  to  be 
implemented. 

The final assessment of 6th EAP concluded that the programme delivered benefits for 
the  environment  and  provided  an  overarching  strategic  direction  for  environment 
policy. Despite those achievements, unsustainable trends still persist in all four priority 

OJ C , , p. . 
OJ C , , p. . 
COM(2010) 2020 (OJ C 88 of 19.3.2011) and EUCO 13/10. 

EN 

4 

   EN 

                                                 
(5) 

(6) 

(7) 

(8) 

(9) 

areas identified in the 6th EAP: climate change, biodiversity, environment and health, 
and sustainable use of natural resources and management of waste. 

The final assessment highlighted some shortcomings of the 6th EAP, which should be 
addressed in the new programme. 

Global  systemic  trends  and  challenges  related  to  population  dynamics,  urbanisation, 
disease and pandemics, accelerating technological change and unsustainable economic 
growth  add  to  the  complexity  of  tackling  environmental  challenges  and  achieving 
long-term  sustainable  development.  Ensuring  the  Union’s  long-term  prosperity 
requires taking further action to address those challenges. 

It is essential that Union priority objectives for 2020 are established, in light of a long-
term  vision  for  2050.  The  new  programme  should  build  on  policy  initiatives  in  the 
Europe 2020 strategy4, including the EU climate and energy package5, the Roadmap 
for moving to a low-carbon economy in 20506, the EU Biodiversity Strategy to 20207, 
the  Roadmap  to  a  resource-efficient  Europe8  and  the  Innovation  Union  Flagship 
Initiative9. 

The  programme  should  help  achieve  the  environment  targets  the  Union  has  already 
agreed. 

The Union has agreed to achieve a reduction of EU greenhouse gas (GHG) emissions 
of  at  least  20 %  by  2020  (30 %,  provided  that  other  developed  countries  commit 
themselves  to  comparable  emissions  reductions  and  that  developing  countries 
contribute adequately according to their responsibilities and respective capabilities); to 
ensure that 20 % of energy consumption comes from renewable energy by 2020; and a 
20 %  cut  in  primary  energy  use  compared  with  projected  levels,  to  be  achieved  by 
improving energy efficiency10; 

(10)  The Union has agreed to halt the loss of biodiversity and the degradation of ecosystem 
services in the EU by 2020, restore them in so far as feasible, while stepping up the 
EU contribution to averting global biodiversity loss11; 

(11)  The  Union  has  agreed  to  achieve  good  status  for  all  Union  waters,  including 
freshwater  (rivers  and  lakes,  groundwater),  transitional  waters  (estuaries/deltas)  and 
coastal waters within one nautical mile from the coast by 201512; 

(12)  The Union has agreed achieve good environmental status in all marine waters of the 

Union by 202013; 

4 
5 

6 
7 
8 
9 
10 
11 
12 

(EC)  No  443/2009,  Directive  2009/28/EC,  Directive  2009/29/EC,  Directive 

COM(2010) 2020, OJ C 88 of 19.3.2011. 
Regulation 
2009/30/EC,Directive 2009/31/EC, Decision No 406/2009/EC, all in OJ L 140 of 5.6.2009. 
COM (2011) 112, OJ C 140 of 11.5.2011. 
COM(2011) 244, OJ C 264 of 8.9.2011. 
COM(2011) 571, OJ C 37 of 10.2.2012. 
COM(2010) 546, OJ C 121 of 19.4.2011 
European Council 8/9 March 2007. 
EUCO 7/10; Council Conclusions 7536/10; COM(2011) 244 
Directive 2000/60/EC, OJ L 327 of 22.12.2000. 

EN 

5 

   EN 

                                                 
(13)  The Union has agreed to achieve levels of air quality that do not give rise to significant 

negative impacts on and risks to human health and the environment14; 

(14)  The  Union  has  agreed  to  achieve,  by  2020,  that  chemicals  are  used  and  produced  in 
ways that lead to the minimisation of significant adverse effects on human health and 
the environment15; 

(15)  The Union has agreed to protect the environment and human health by preventing or 
reducing  the  adverse  impacts  of  the  generation  and  management  of  waste  and  by 
reducing overall impact of resource use and improving the efficiency of such use, by 
applying  the  following  waste  hierarchy:  prevention,  preparing  for  re-use,  recycling, 
other recovery, disposal16; 

(16)  The  Union  has  agreed  to  strive  towards  an  absolute  decoupling  of  economic  growth 

and environmental degradation17; 

(17)  The  Union  has  agreed  to  strive  to  achieve  a  land  degradation  neutral  world  in  the 

context of sustainable development.18 

(18)  Union  environment  policy  is  based  in  particular  on  the  polluter-pays  principle,  the 
precautionary  principle  and  preventive  action,  and  the  principle  of  rectification  of 
pollution at source. 

(19)  Action  to  deliver  the  priority  objectives  should  be  taken  at  different  levels  of 

governance, in line with the principle of subsidiarity.  

(20)  Engagement  with  non-government  actors  is  important  in  ensuring  the  success  of  the 

programme and the achievement of its priority objectives. 

(21)  Biodiversity  loss  and  the  degradation  of  ecosystems  in  the  Union  have  important 
implications for the environment and are costly for society as a whole, particularly for 
economic actors in sectors that depend directly on ecosystem services.  

(22)  There  is  significant  scope  for  reducing  greenhouse  gas  emissions  and  enhancing 
resource  efficiency  in  the  Union.  This  will  ease  pressures  on  the  environment  and 
bring  increased  competitiveness  and  new  sources  of  growth  and  jobs  through  cost 
savings  from  improved  efficiency,  commercialisation  of  innovations  and  better 
management of resources over their whole life cycle.  

(23)  Environmental  problems  and  impacts  continue  to  pose  significant  risks  for  human 
health and wellbeing, whereas measures to improve the state of the environment can 
be beneficial.  

13 
14 
15 

16 
17 
18 

Directive 2008/56/EC, OJ L 164 of 25.6.2008. 
Decision No 1600/2002/EC OJ L242 of 10.8.2002; Directive 2008/50/EC, OJ L 152 of 11.6.2008. 
Decision  No  1600/2002/EC  OJ  L242  of  10.8.2002;  Johannesburg  Plan  of  Implementation  (WSSD 
2002). 
Directive 2008/98/EC, OJ L 312 of 22.11.2008. 
Council conclusions 11 June 2012; COM(2011)571. 
United Nations General Assembly A/Res/66/288. 

EN 

6 

   EN 

                                                                                                                                                         
(24)  The  full  and  even  implementation  of  the  environment  acquis  across  the  Union  is  a 

sound investment for the environment and human health, and also for the economy.  

(25)  Union environment policy should continue to draw on a sound evidence base.  

(26)  Environmental objectives should be supported by adequate investments.  

(27)  Environmental integration is essential to reduce pressures on the environment resulting 
from the policies and activities of other sectors and to meet environment and climate-
related targets.  

(28)  The Union is densely populated, and over 70 % of citizens live in urban and peri-urban 

areas and face specific environment and climate-related challenges.  

(29)  Many environmental challenges are global and can only be fully addressed through a 
comprehensive  global  approach,  while  other  environmental  challenges  have  a  strong 
regional dimension, which requires cooperation with neighbouring countries.  

(30)  As  part  of  the  follow-up  to  the  2012  United  Nations  Conference  on  Sustainable 
Development  (Rio+20  Summit),  the  new  general  action  programme  should  support 
international  and  regional  processes  aiming  to  transform  the  global  economy  into  an 
inclusive  green  economy  in  the  context  of  sustainable  development  and  poverty 
reduction. 

(31)  An  appropriate  mix  of  policy  instruments  can  enable  businesses  and  consumers  to 
improve their understanding of the impact of their activities on the environment and to 
manage  the  impact.  Such  policy  instruments  include  economic  incentives,  market-
based instruments, information requirements as well as voluntary tools and measures 
to complement legislative frameworks and engage stakeholders at different levels. 

(32)  All  measures,  actions  and  targets  set  out  in  the  new  general  environment  action 
programme  should  be  taken  forward  in  accordance  with  the  principles  of  smart 
regulation19 and subject to comprehensive impact assessment where appropriate. 

(33)  Progress  towards  meeting  the  objectives  of  the  new  general  environment  action 
programme  should  be  monitored,  assessed  and  evaluated  on  the  basis  of  agreed 
indicators,  

19 

COM(2010)543, OJ C 121 of 19.4.2011. 

EN 

7 

   EN 

                                                 
HAVE ADOPTED THIS DECISION: 

Article 1 

A  general  Union  action  programme  in  the  field  of  the  environment  for  the  period  up  to  31 
December 2020 (‘the programme’) is adopted as set out in the Annex. 

Article 2 

1. In executing the programme, the Union shall have the following objectives: 

(a) 

to protect, conserve and enhance the Union’s natural capital; 

(b) 

(c) 

to  turn  the  Union  into  a  resource-efficient,  green  and  competitive  low-carbon 
economy; 

to safeguard the Union's citizens from environment-related pressures and risks 
to health and wellbeing; 

(d) 

to maximise the benefits of the Union's environment legislation; 

(e) 

to improve the evidence base for environment policy; 

(f) 

to  secure  investment  for  environment  and  climate  policy  and  get  the  prices 
right; 

(g) 

to improve environmental integration and policy coherence; 

(h) 

to enhance the sustainability of the Union's cities; 

(i) 

to  increase  the  Union’s  effectiveness  in  confronting  regional  and  global 
environmental challenges. 

2. The programme shall be  based on  the  polluter-pays principle, the precautionary principle 
and preventive action, and the principle of rectification of pollution at source. 

3.  All  measures,  actions  and  targets  set  out  in  the  programme  shall  be  implemented  in 
accordance  with  the  principles  of  smart  regulation20  and  subject  to  comprehensive  impact 
assessment where appropriate. 

Article 3 

1. The Union and its Member States are responsible for ensuring the delivery of the priority 
objectives set out in this programme. They shall pursue a coherent approach to addressing the 
challenges identified. Action shall be taken with due account of the principle of subsidiarity 

20 

COM(2010)543, OJ C 121 of 19.4.2011. 

EN 

8 

   EN 

                                                 
and at the level best suited to achieving the priority objectives and related outcomes set out in 
this programme. 

2. Public authorities at all levels shall work with businesses and social partners, civil society 
and individual citizens in implementing this programme.  

Article 4 

This  Decision  shall  enter  into  force  on  the  twentieth  day  following  its  publication  in  the 
Official Journal of the European Union. 

Done at Brussels,  

For the European Parliament 
The President 

For the Council 
The President 

EN 

9 

   EN 

ANNEX 

‘Living well, within the limits of our planet’ 

A PROGRAMME FOR ACTION TO 2020 

1. 

2. 

3. 

4. 

5. 

Over  the  past  40  years,  a  broad  range  of  environmental  legislation  has  been  put  in 
place, adding up to the most comprehensive modern standards in the world. This has 
helped  to  address  some  of  the  most  serious environmental concerns of citizens and 
businesses in the Union. 

Emissions  of  pollutants  to  air,  water  and  soil  have  been  reduced  significantly  over 
the  past  decades,  as  have  greenhouse  gas  (GHG)  emissions  in  recent  years.  EU 
chemicals  legislation  has  been  modernised  and  the  use  of  many  toxic  or  hazardous 
substances such as lead, cadmium and mercury has been restricted in products found 
in most households. EU citizens enjoy some of the best water quality in the world, 
and  over  18 %  of  the  EU’s  territory  and  4 %  of  its  seas  have  been  designated  as 
protected areas for nature. 

The  Union's  environment  policy  has  stimulated  innovation  and  investment  in 
environmental  goods  and  services,  generating  jobs  and  export  opportunities21. 
Successive  enlargements  have  extended  high  standards  of  environmental  protection 
across  a  large  part  of  the  European  continent,  and  the  Union's  efforts  have 
contributed  to  increasing  international  commitment  to  combat  climate  change  and 
biodiversity  loss,  and  to  successful  global  efforts  to  eliminate  ozone-depleting 
substances and leaded fuels. 

Considerable  headway  has  also  been  made  in  integrating  environmental  objectives 
into other Union policies and activities. The reformed Common Agricultural Policy 
(CAP)  has,  since  2003,  linked  direct  payments  to  requirements  for  farmers  to 
maintain land in good agricultural and environmental condition and to comply with 
relevant  environmental  legislation.  Fighting  climate  change  has  become  an  integral 
part of energy policy and progress is being made on integrating resource efficiency, 
climate  change  and  energy  efficiency  concerns  into  other  key  sectors,  such  as 
transport and buildings.  

However,  many  environmental  trends  in  the  EU  remain  worrying,  not  least  due  to 
insufficient  implementation  of  existing  EU  environment  legislation.  Only  17 %  of 
species  and  habitats  assessed  under  the  Habitats  Directive22  are  in  good  status,  and 
the degradation and loss of natural capital is jeopardising efforts to attain the  EU’s 
biodiversity  and  climate  change  objectives.  This  has  high  associated  costs  which 
have not yet been properly valued in our economic or social system. Thirty per cent 
of  the  EU’s  territory  is  highly  fragmented,  affecting  the  connectivity  and  health  of 
ecosystems and their ability to provide services as well as viable habitats for species. 
While progress has been made in the EU to decouple growth from GHG emissions, 

21 

22 

The  economic  benefits  of  environmental  policy  (IES,  Vrije  Universiteit  Amsterdam,  2009); 
COM(2012) 173; Implementing EU legislation for Green Growth (BIO Intelligence Service 2011). 
Directive 92/43/EEC, OJ L 206 of 22.7.1992. 

EN 

10 

   EN 

                                                 
resource  use  and  environmental  impacts,  resource  use  is  still  largely  unsustainable 
and inefficient, and waste is not yet properly managed. As a result, EU businesses are 
foregoing  the  significant  opportunities  that  resource  efficiency  offers  in  terms  of 
competitiveness,  cost  reductions,  improved  productivity  and  security  of  supply. 
Water quality and air pollution levels are still problematic in many parts of Europe, 
and  EU  citizens  continue  to  be  exposed  to  hazardous  substances,  potentially 
compromising  their  health  and  wellbeing.  Unsustainable  land  use  is  consuming 
fertile  soils,  with  impacts  on  food  security  and  the  achievement  of  biodiversity 
targets. Soil degradation continues largely unchecked. 

Environmental  change  in  the  EU  is  increasingly  caused  by  developments  taking 
place  at  global  level,  including  demographics,  consumption  and  trade  patterns,  and 
rapid technological progress. These may offer significant opportunities for economic 
growth  and  societal  well-being,  but  pose  challenges  and  uncertainties  for  the  EU’s 
economy and society and are causing environmental degradation worldwide23. 

Together  with  current  wasteful  production  and  consumption  systems  in  the  world 
economy, rising global demand for goods and services and depletion of resources is 
increasing the cost of essential raw materials, minerals and energy, generating more 
pollution and waste, increasing global GHG emissions and driving land degradation, 
deforestation and biodiversity loss. Nearly two-thirds of the world’s ecosystems are 
in decline24 and there is evidence that planetary boundaries for biodiversity, climate 
change and the nitrogen cycle have already been transgressed25. There is likely to be 
a  global  shortfall  of  40  %  in  water  by  2030  unless  there  is  significant  progress  in 
improving resource efficiency. There is also the risk that climate change will further 
exacerbate these problems, with high costs. In 2011, disasters partly due to climate 
change resulted in global economic losses of over 300 billion Euros. The OECD has 
warned  that  the  continued  degradation  and  erosion  of  natural  capital  risks  bringing 
about  irreversible  changes  that  could  endanger  two  centuries  of  rising  living 
standards and entail significant costs26.  

Addressing some of these complex issues requires tapping into the full potential of 
existing  environmental  technology  and  ensuring  the  continuous  development  and 
uptake by industry of the best available techniques and emerging innovations. Rapid 
advances in promising fields of science and technology are also needed. This should 
be made possible by boosting research and creating conditions conducive to private 
research-related  investments.  At  the  same  time,  we  need  a  better  understanding  of 
potential  risks  to  the  environment  and  human  health  associated  with  new 
technologies, and we need to assess and manage these better. This is a precondition 
for  public  acceptance  of  new  technologies,  as  well  as  for  the  EU’s  capacity  to 

SEC(2011)  1067;  The  European  Environment  -  State  and  Outlook  2010:  Assessment  of  Global 
Megatrends (EEA, 2010). 
UN Secretary-General’s High-Level Panel on Global Sustainability report ‘Resilient People, Resilient 
Planet: A future worth choosing’, 2012. 
Thresholds associated with nine ‘planetary boundaries’ have been identified which, once crossed, could 
lead  to  irreversible  changes  with  potentially  disastrous  consequences  for  humans,  including:  climate 
change, biodiversity loss, global freshwater use, ocean acidification, the nitrogen and phosphorus cycles 
and land-use change (Ecology and Society, Vol. 14, No 2, 2009). 
Environmental Outlook to 2050 (OECD 2012). 

6. 

7. 

8. 

23 

24 

25 

26 

EN 

11 

   EN 

                                                 
identify and respond to potential risks associated with technological developments in 
an effective and timely manner. 

To live well in the future, urgent, concerted action should be taken now to improve 
ecological  resilience  and  maximise  the  benefits  environment  policy  can  deliver  for 
the  economy  and  society,  while  respecting  the  planet’s  ecological  limits.  This 
programme  reflects  the  EU’s  commitment  to  transforming  itself  into  an  inclusive 
green economy that secures growth and development, safeguards human health and 
well-being,  provides  decent  jobs,  reduces  inequalities  and  invests  in  and  preserves 
natural capital. 

The following 2050 vision is intended to help guide action up to and beyond 2020: In 
2050, we live well, within the planet's ecological limits. Our prosperity and healthy 
environment stem from an innovative, circular economy where nothing is wasted and 
where  natural  resources  are  managed  in  ways  that  enhance  our  society's  resilience. 
Our low carbon growth has long been decoupled from resource use, setting the pace 
for a global sustainable economy. 

This  transformation  requires  the  full  integration  of  environment  issues  into  other 
policies,  such  as  energy,  transport,  agriculture,  fisheries,  economy  and  industry, 
research  and  innovation,  employment  and  social  policy  so  as  to  create  a  coherent, 
joined-up approach. Action within the EU should also be complemented by enhanced 
global  action  and  cooperation  with  neighbouring  countries  to  tackle  common 
challenges. 

The EU has set this transformation in motion with long-term, integrated strategies to 
halt  biodiversity  loss27,  improve  resource  efficiency28  and  expedite  the  transition 
low-carbon  economy29.  The  Commission  has  further 
integrated 
towards  a 
environmental concerns and objectives in recent initiatives taken in other key policy 
areas,  including  energy30  and  transport31,  and  sought  to  enhance  the  delivery  of 
environmental  benefits  through  reforms  of  EU  policies  for  agriculture  and  rural 
development, fisheries and cohesion, building on achievements to date.  

The EU has signed up to many internationally-agreed environmental commitments, 
including those made at the United Nations Conference on Sustainable Development 
(Rio+20)32 where it marked its support for the inclusive green economy as a central 
part of a broader strategy for sustainable development. 

This programme complements these efforts by defining priority objectives for the EU 
to attain over the period up to 2020.  

In  many  cases,  action  to  achieve  these  objectives  will  be  required  primarily  at 
national, regional or local level, in line with the principle of subsidiarity. In others, 
additional measures at EU level will be needed. Since environment policy is a sphere 

COM(2011) 244, OJ C 264 of 8.9.2011. 
COM(2011) 571, OJ C 37 of 10.2.2012. 
COM(2011) 112, OJ C 140 of 11.5.2011. 
COM(2011) 885, OJ C 102 of 5.4.2012. 
COM(2011) 144, OJ C 140 of 11.5.2011. 
United Nations General Assembly Resolution 66/288. 

9. 

10. 

11. 

12. 

13. 

14. 

15. 

27 
28 
29 
30 
31 
32 

EN 

12 

   EN 

                                                 
of shared competence in the EU, one of the purposes of this programme is to create 
common  ownership  of  shared  goals  and  objectives  and  ensure  a  level  playing  field 
for businesses and public authorities. Clear goals and objectives also provide policy 
makers  and  other  stakeholders,  including  regions  and  cities,  businesses  and  social 
partners,  and  individual  citizens,  with  a  sense  of  direction  and  a  predictable 
framework for action. 

THEMATIC PRIORITIES 

Priority objective 1: To protect, conserve and enhance the EU’s natural capital 

16. 

17. 

18. 

The EU’s economic prosperity and well-being is underpinned by its natural capital, 
which includes ecosystems that provide essential goods and services, from fertile soil 
and multi-functional forests to productive land and seas, from fresh water and clean 
air to pollination, flood control and climate regulation and protection against natural 
disasters.  A  substantial  body  of  EU  legislation  seeks  to  protect,  conserve  and 
enhance  natural  capital,  including  the  Water  Framework  Directive  (WFD)33,  the 
Marine  Strategy  Framework  Directive  (MSFD)34,  the  Air  Quality  and  related 
directives35  and  the  Habitats  and  Birds  Directives36.  Legislation  to  tackle  climate 
change,  chemicals,  industrial  emissions  and  waste  also  contribute  to  easing  the 
pressures on biodiversity, including ecosystems, species and habitats. 

However, recent assessments show that biodiversity in the EU is still being lost and 
that  most  ecosystems  are  seriously  degraded37.  The  EU  Biodiversity  Strategy  to 
202038  sets  out  targets  and  actions  needed  to  reverse  these  negative  trends  and  to 
enhance ecosystem services. It must be implemented in full to enable the EU to meet 
its  biodiversity  headline  target  for  2020.  Whereas  the  strategy  includes  built-in 
measures  to  improve  the  implementation  of  the  Birds  and  Habitats  directives, 
including the Natura 2000 network, reaching the headline target will require the full 
implementation of all existing legislation aimed at protecting natural capital. 

Despite  considerable  efforts  to  date,  the  requirement  under  the  WFD  to  achieve 
‘good  ecological  status’  by  2015  is  likely  to  be  met  only  for  some  53 %  of  surface 
water  bodies  in  the  EU39.  There  is  also  a  risk  that  the  Marine  Strategy  Framework 
Directive target to achieve ‘good environmental status’ by 2020 may be missed, inter 
alia due to continued overfishing and the presence of marine litter in Europe’s seas. 
And  while  EU  air  and  industrial  emissions  policies  have  helped  to  reduce  many 
forms  of  pollution,  ecosystems  continue  to  suffer  from  excess  nitrogen  deposition 
and  ozone  pollution  associated  with  emissions  from  transport,  intensive  agriculture 
and power generation. 

33 
34 
35 
36 
37 
38 
39 

Directive 2000/60/EC, OJ L 327 of 22.12.2000. 
Directive 2008/56/EC, OJ L 164 of 25.6.2008. 
Directive 2008/50/EC, OJ L 152 of 11.6.2008 and Directive 2004/107/EC, OJ L 23 of 26.1.2005. 
Directive 2009/147/EC, OJ L 20 of 26.1.2010 and Directive 92/43/EEC, OJ L 206 of 22.7.1992. 
EEA Technical Report 12/2010. 
COM(2011) 244, OJ C 264 of 8.9.2011. 
COM(2012) 673. 

EN 

13 

   EN 

                                                 
19. 

20. 

21. 

22. 

Protecting, conserving and enhancing the EU’s natural capital therefore also requires 
tackling  problems  at  source  through,  inter  alia,  better  integration  of  natural  capital 
objectives  into  other  policies,  ensuring  that  policies  are  coherent  and  deliver  co-
benefits.  The  greening  elements  set  out  in  the  Commission’s  reform  proposals, 
notably  for  EU  agriculture,  fisheries  and  cohesion  policy,  backed  by  the  proposals 
for greening the EU budget under the Multi-Annual Financial Framework 2014-2020 
(MFF) are designed to support these objectives. For instance, aquatic ecosystems in 
rural  areas  should  benefit  from  the  linking  of  farm  payments  to  compliance  with 
relevant requirements of the WFD as set out in the Commission's proposals for the 
reform  of  the  CAP40.  Greening  of  the  CAP  will  also  promote  the  environmentally 
beneficial  agricultural  practices  of  crop  diversification,  the  protection  of  permanent 
grassland, and the establishment and maintenance of ecologically valuable farmland 
and forest areas. 

In  the  case  of  the  marine  environment,  while  the  maritime  sector  offers  economic 
opportunities,  from  fishing,  shipping  and  aquaculture to raw materials and offshore 
energy and marine biotechnology, care needs to be taken to ensure their exploitation 
is  compatible  with  the  conservation  and  sustainable  management  of  marine  and 
coastal ecosystems. 

Ecosystem-based approaches to climate change mitigation and adaptation which also 
benefit  biodiversity  and  the  provision  of  other  ecosystem  services  should  be  used 
more  extensively  as  part  of  the  EU’s  climate  change  policy,  while  other 
environmental  objectives  such  as  biodiversity  conservation  and  water  protection 
should be fully taken into account in decisions relating to renewable energy. Finally, 
measures to address transport-related air pollution and CO2 emissions will need to be 
rolled out41. 

The  degradation,  fragmentation  and  unsustainable  use  of  land  in  the  EU  is 
jeopardising the provision of several key ecosystem services, threatening biodiversity 
and  increasing  Europe’s  vulnerability  to  climate  change  and  natural  disasters.  It  is 
also driving soil degradation. More than 25% of the EU's territory is affected by soil 
erosion  by  water,  which  compromises  soil  functions  and  affects  the  quality  of 
freshwater.  Soil  contamination  and  sealing  are  also  persistent  problems.  More  than 
half a million sites across the EU are thought to be contaminated and until they are 
identified and assessed, they continue to pose potentially serious environmental and 
health risks. Every year more than 1 000 km² of land are taken for housing, industry, 
transport or recreational purposes. These long-term changes are difficult or costly to 
reverse, and nearly always involve trade-offs between various social, economic and 
environmental needs. Member States' planning decisions relating to land use should 
be made more sustainable. 

23. 

To  reduce  the  most  significant  man-made  pressures  on  land,  soil  and  other 
ecosystems in Europe, action will be taken to ensure that decisions relating to land 
use at all relevant levels give proper consideration to environmental as well as social 
and economic impacts. The Rio+20 Summit outcome called for a 'land degradation 
neutral world'. The EU and Member States should reflect on how best to make such a 

40 
41 

COM(2011) 625, OJ C 37 of 10.2.2012. 
COM(2011) 144, OJ C 140 of 11.5.2011. 

EN 

14 

   EN 

                                                 
24. 

25. 

commitment  operational  within  their  respective  competencies  as  well  as  to  address 
soil  quality  issues  within  a  binding  legal  framework42.  Targets  will  also  be  set  for 
sustainable land use and soil. 

Although  nitrogen  and  phosphorus  inputs  to  the  EU  environment  have  decreased 
considerably over the past 20 years, excessive nutrient releases continue to affect air 
and water quality and to have a negative impact on ecosystems, causing significant 
problems for human health. In particular, ammonia release from inefficient fertiliser 
management  and  inadequate  waste  water  treatment  urgently  need  to  be  tackled  to 
achieve further significant reductions in nutrient releases. Further efforts to manage 
the nutrient cycle in a more cost-effective and resource-efficient way, and to improve 
efficiency  in  use  of  fertilisers  are  also  required.  This  calls  for  improving  the 
implementation  of  EU  environmental  legislation  to  address  these  challenges, 
tightening  standards  where  necessary  and  addressing  the  nutrient  cycle  as  part  of  a 
more holistic approach which interlinks and integrates existing EU policies that play 
a role in tackling excessive nutrient releases and eutrophication. 

Action taken under the Biodiversity Strategy to restore 15 % of degraded ecosystems 
in the EU and to expand the use of green infrastructure will help to overcome land 
fragmentation.  It  will  further  enhance  natural  capital  and  increase  ecosystem 
resilience,  and  can  offer  cost-effective  options  for  climate  change  mitigation  and 
adaptation and disaster risk management. Meanwhile, Member States’ efforts to map 
and assess ecosystems and their services, and the ‘no net loss’ initiative planned in 
2015 will contribute to maintaining the stock of natural capital at a variety of scales. 
The  integration  of  the  economic  value  of  ecosystem  services  into  accounting  and 
reporting systems at EU and national level by 2020 will result in better management 
of the EU’s natural capital. 

26. 

In  order  to  protect,  conserve  and  enhance  the  EU's  natural  capital,  the  programme 
shall ensure that by 2020: 

(a)  The  loss  of  biodiversity  and  the  degradation  of  ecosystem  services  are  halted 

and ecosystems and their services are maintained and enhanced. 

(b)  The  impacts  of  pressures  on  fresh,  transitional  and  coastal  waters  are 
significantly reduced to achieve, maintain or enhance good status as defined by 
the Water Framework Directive. 

(c)  The impacts of pressures on marine waters are reduced to achieve or maintain 
good  environmental  status  as  required  by  the  Marine  Strategy  Framework 
Directive. 

(d)  The  impacts  of  air  pollution  on  ecosystems  and  biodiversity  are  further 

reduced. 

(e)  Land  is  managed  sustainably  in  the  EU,  soil  is  adequately  protected  and  the 

remediation of contaminated sites is well underway. 

42 

COM(2006)  232  (OJ  C  332  of  30.12.2006)  proposes  a  Directive  establishing  a  framework  for  the 
protection of soil and amending Directive 2004/35/EC. 

EN 

15 

   EN 

                                                 
(f)  The nutrient cycle (nitrogen and phosphorus) is managed in a more sustainable 

and resource-efficient way. 

(g)  Forests  and  the  services  they  provide  are  protected  and  their  resilience  to 

climate change and fires is improved. 

This requires, in particular: 

(a)  Fully implementing the EU Biodiversity Strategy. 

(b)  Fully implementing the Blueprint to Safeguard Europe’s Water Resources. 

(c) 

Increasing efforts, inter alia, to ensure that healthy fish stocks are achieved by 
2020 at the latest, starting by fishing at, or below, maximum sustainable yield 
levels  as  from  2015  in  all  fisheries,  and  establish  an  EU-wide  quantitative 
reduction target for marine litter. 

(d)  Strengthening  efforts  to  reach  full  compliance  with  EU  air  quality  legislation 

and defining strategic targets and actions beyond 2020. 

(e) 

Increasing  efforts  to  reduce  soil  erosion  and  increase  soil  organic  matter,  to 
remediate contaminated sites and to enhance the integration of land use aspects 
into coordinated decision-making involving all relevant levels of government, 
supported by the adoption of targets on soil and on land as a resource, and land 
planning objectives. 

(f)  Taking further steps to reduce emissions of nitrogen and phosphorus, including 

those from urban and industrial wastewater and from fertiliser use. 

(g)  Developing  and  implementing  a  new  EU  Forest  Strategy  that  addresses  the 
multiple demands on and benefits of forests and contributes to a more strategic 
approach to protecting and enhancing forests. 

Priority  objective  2:  To  turn  the  EU  into  a  resource-efficient,  green  and  competitive  low-
carbon economy 

27. 

The Europe 2020 Strategy’s ‘Resource-efficient Europe’ Flagship Initiative aims to 
support the shift towards an economy that is efficient in the way it uses all resources, 
decouples  absolutely  economic  growth  from  resource  and  energy  use  and  its 
environmental  impacts,  reduces  GHG  emissions,  enhances  competitiveness  through 
efficiency  and  innovation  and  promotes  greater  energy  security.  The  Roadmap  to 
Resource  Efficient  Europe43  and  the  Roadmap  for  moving  to  a  competitive  low-
carbon economy44 are key building blocks of the Initiative, setting out the framework 
for future actions to deliver on these objectives. 

43 
44 

COM(2011) 571, OJ C 37 of 10.2.2012. 
COM(2011) 112, OJ C 140 of 11.5.2011. 

EN 

16 

   EN 

                                                 
28. 

29. 

30. 

31. 

Innovation to improve resource efficiency is required across the economy to improve 
competitiveness  in  the  context  of  rising  resource  prices,  scarcity  and  supply 
constraints.  The  business  sector  is  the  prime  driver  of  innovation,  including  eco-
innovation. However, markets will not deliver on their own. Government action, at 
Union and Member State level, is essential to provide the right framework conditions 
for  eco-innovation,  stimulating  the  development  of  sustainable  business  or 
technological solutions to environmental challenges45. 

This  key  requirement  for  meeting  the  environmental  challenge  also  has  important 
socio-economic benefits. Potential job growth brought about by the transformation to 
a low carbon and resource-efficient economy is key for delivering the Europe 2020 
employment  objectives46.  Employment  in  environmental  technologies  and  service 
sectors in the EU has been growing by around 3 % annually over recent years47. The 
global market for eco-industries is estimated to be worth at least a trillion Euros, and 
is  forecast  to  almost  double  over  the  next  10  years.  European  companies  already 
have  a  global  lead  in  recycling  and  energy  efficiency  and  should  be  encouraged  to 
benefit from this growth in global demand, supported by the Eco-innovation Action 
Plan48.  For  example,  the  European  renewables  sector  alone  is  expected  to  generate 
more than 400,000 new jobs by 2020. 49 

Fully  implementing  the  EU  Climate  and  Energy  Package  is  essential  to  reach  the 
milestones identified for 2020 and for building a competitive, low-carbon economy 
by 2050. Whereas the EU is currently on track to reduce domestic GHG emissions 
20 %  below  1990  levels  by  2020,  meeting  the  20 %  energy  efficiency  target  will 
require far more rapid efficiency improvements. This is also important in the light of 
still-growing demand for energy and the on-going debate on conflicts between land 
use for food and for bio-energy. The new Energy Efficiency Directive is expected to 
make a significant contribution in this regard. 

All  sectors  of  the  economy  will  need  to  contribute  to  reducing  GHG  emissions  for 
the EU to deliver its fair share of global efforts. The EU needs to agree the next steps 
for  its  climate  and  energy  framework  beyond  2020  in  order  to  prepare  itself  for 
international  negotiations  on  a  new  legally  binding  agreement,  but  also  to  provide 
Member  States  and  industry  with  a  clear  framework  to  make  the  medium-term 
investments  needed.  Hence  the  EU  needs  to  consider  policy  options  for  delivering 
the reductions set out in the Low-Carbon Economy Roadmap for the period beyond 
2020.  The  2050  Energy  roadmap  and  the  White  Paper  on  transport  need  to  be 
underpinned  by  strong  policy  frameworks.  Moreover,  Member  States  need  to 
develop and put in place long-term, cost-effective low-carbon development strategies 
aimed at achieving the EU objective of reducing GHG emissions by 80% to 95% by 
mid-century,  compared  to  1990,  as  part  of  a  global  effort  to  limit  average 

45 

46 
47 

48 
49 

Fostering  Innovation  for  Green  Growth  (OECD  2011)  and  The  Eco-Innovation  Gap:  An  economic 
opportunity for business (EIO 2012). 
COM(2012) 173, not yet published in OJ. 
The EU eco-industry sector employed around 2.7 million people in 2008 and for 2012 this figure could 
be around 3.4 million. (Ecorys, 2012) 
COM(2011) 899, OJ C 102 of 5.4.2012. 
The impact of renewable energy policy on economic growth and employment in the EU (Employ-RES 
2009) 

EN 

17 

   EN 

                                                 
temperature increase to below 2°C. The EU Emissions Trading System will continue 
to be a central pillar of EU climate policy beyond 2020. 

Industry's  uptake  of  the  best  available  techniques  under  the  Industrial  Emissions 
Directive will deliver improved resource use patterns and reduced emissions for over 
50 000 major industrial installations in the EU, thus making a significant contribution 
to stimulating the development of innovative techniques, greening the economy and 
reducing costs for industry in the longer term. 

Measures  will  also  be  taken  to  further  improve  the  environmental  performance  of 
goods and services on the EU market over their whole life cycle through measures to 
increase  the  supply  of  environmentally  sustainable  products  and  stimulate  a 
significant shift in consumer demand for these products. This will be achieved using 
a balanced mix of incentives for consumers and businesses, including SMEs, market-
based  instruments  and  regulations  to  reduce  the  environmental  impacts  of  their 
operations  and  products.  Existing  product  legislation  such  as  the  Ecodesign  and 
Energy Label Directives and the Ecolabel Regulation will be reviewed with a view to 
improving  the  environmental  performance  and  resource  efficiency  of  products 
throughout their lifecycle, thus ensuring a more coherent framework for sustainable 
production and consumption in the EU50. 

Since  80%  of  all  product-related  environmental  impacts  are  locked  in  during  their 
design phase, the EU policy  framework  should  ensure that priority products placed 
on the EU market are ‘eco-designed’ with a view to optimising resource and material 
efficiency,  by  addressing  inter  alia  recyclability,  recycled  content  and  durability. 
These  requirements  will  have  to  be  implementable  and  enforceable.  Efforts  will  be 
stepped  up  at  EU  and  national  level  to  remove  barriers  to  eco-innovation51  and  to 
unlock  the  full  potential  of  Europe’s  eco-industries,  generating  benefits  for  green 
jobs and growth. 

To set a framework for action to improve resource efficiency aspects beyond GHG 
emissions  and  energy,  targets  for  reducing  the  overall  environmental  impact  of 
consumption  will  be  set,  in  particular  in  the  food,  housing  and  mobility  sectors52. 
Taken together, these are responsible for almost 80 % of the environmental impacts 
of  consumption.  The  Rio+20  outcome  recognised  the  need  to  significantly  reduce 
post-harvest and other food losses and waste throughout the food supply chain. 

In addition to mandatory green public procurement requirements for certain product 
categories53,  most  Member  States  have  adopted  voluntary  action  plans  and  many 
have  set  targets  for  specific  product  groups.  There  is,  however,  considerable  scope 
for administrations at all levels to further reduce their environmental impact through 

Ecodesign,  Energy  Label,  Ecolabel,  EMAS  and  Unfair  Commercial  Practice  legislation  is  due  for 
revision before 2015. 
COM(2011) 899, OJ C 102 of 5.4.2012. 
Annual food waste generation in the EU is approximately 89 million tonnes, representing 179 kg per 
capita (BIO Intelligence Service 2010). The aggregated impacts of housing and infrastructure account 
for  around  15-30 %  of  all  consumption-related  environmental  pressures  in  Europe  and  contribute 
approximately 2.5 tonnes of CO2 equivalent per capita annually (SEC(2011) 1067). 
Regulation (EC) No 106/2008, OJ L 39 of 13.2.2008; Directive 2009/33/EC, OJ L 120 of 15.5.2009 and 
the new Energy Efficiency Directive 2012/27/EU, OJ L 315 of 14.11.2012. 

32. 

33. 

34. 

35. 

36. 

50 

51 
52 

53 

EN 

18 

   EN 

                                                 
37. 

38. 

39. 

their  purchasing  decisions.  Member  States  and  regions  should  take  further  steps  to 
reach  the  target  of  applying  green  procurement  criteria  to  at  least  50%  of  public 
tenders.  The  Commission  will  assess  the  possibility  of  introducing  further  sector-
specific  legislation  to  set  mandatory  green  public  procurement  rules  for  additional 
product categories.  

There  is  also  considerable  potential  for  improving  waste  management  in  the  EU  to 
make  better  use  of  resources,  open  up  new  markets,  create  new  jobs  and  reduce 
dependence  on  imports  of  raw  materials,  while  having  lower  impacts  on  the 
environment54.  Each  year  in  the  EU,  2.7  billion  tonnes  of  waste  are  produced,  of 
which  98  million  tonnes  is  hazardous.  On  average,  only  40 %  of  solid  waste  is  re-
used  or  recycled.  The  rest  goes  to  landfill  or  incineration.  In  some  Member  States, 
more than 70 % of waste is recycled, showing how waste could be used as one of the 
EU’s  key  resources.  At  the  same  time,  many  Member  States  landfill  over  75 %  of 
their municipal waste. 

Turning  waste  into  a  resource,  as  called  for  in  the  Resource  Efficiency  Roadmap, 
requires  the  full  implementation  of  EU  waste  legislation  across  the  EU,  based  on 
strict  application  of  the  waste  hierarchy  and  covering  different  types  of  waste55. 
Additional  efforts  are  needed  to:  reduce  per  capita  waste  generation  in  absolute 
terms,  limit  energy  recovery  to  non-recyclable  materials,  phase  out  landfilling, 
ensure  high  quality  recycling,  and  develop  markets  for  secondary  raw  materials. 
Hazardous  waste  will  need  to  be  managed  so  as  to  minimise  significant  adverse 
effects on human health and the environment, as agreed at the Rio+20 Summit. To 
achieve this, market-based instruments that privilege prevention, recycling and re-use 
should be applied much more systematically across the EU. Barriers facing recycling 
activities in the EU internal market should be removed and existing prevention, re-
use,  recycling,  recovery  and  landfill  diversion  targets  reviewed  so  as  to  move 
towards a ‘circular’ economy, with a cascading use of resources and residual waste 
close to zero.  

Resource  efficiency  in  the  water  sector  will  also  be  tackled  as  a  priority  to  help 
deliver  good  water  status.  Even  though  droughts  and  water  scarcity  are  affecting 
more and more parts of Europe, an estimated 20-40 % of Europe’s available water is 
still  being  wasted,  for  instance,  through  leakages  in  the  distribution  system. 
According  to  available  modelling,  there  is  still  considerable  scope  for  improving 
water  efficiency  in  the  EU.  Moreover,  rising  demand  and  the  impacts  of  climate 
change  are  expected  to  increase  the  pressure  on  Europe’s  water  resources 
significantly.  Against  this  background,  the  Union  and  Member  States  should  take 
action to ensure water abstraction respects available renewable water resource limits 
by  2020,  including  by  improving  water  efficiency  through  the  use  of  market 
mechanisms  such  as  water  pricing  that  reflects  the  true  value  of  water56.  Progress 
will  be  facilitated  by  accelerated  demonstration  and  rolling  out  of  innovative 

54 

55 
56 

For example, the full implementation of EU waste legislation would save €
the annual turnover of the EU waste management and recycling sector by €
400 000 jobs by 2020.  
Directive 2008/98/EC, OJ L 312 of 22.11.2008. 
COM(2012) 673. 

 72 billion a year, increase 
 42 billion and create over 

EN 

19 

   EN 

                                                 
technologies, systems and business models building on the Strategic Implementation 
Plan of the European Innovation Partnership on Water. 

40. 

A  long-term  and  predictable  policy  framework  in  all  these  areas  will  help  to 
stimulate  the  level  of  investments  and  action  needed  to  fully  develop  markets  for 
greener technologies and promote sustainable business solutions. Resource efficiency 
indicators  and  targets  are  needed  to  provide  the  necessary  guidance  for  public  and 
private decision-makers in transforming the economy. They will become an integral 
part of this programme once agreed at Union level.  

41. 

In order to turn the EU into a resource-efficient, green and competitive low-carbon 
economy, the programme shall ensure that by 2020: 

(a)  The  EU  has  met  its  2020  climate  and  energy  targets  and  is  working  towards 
reducing GHG emissions by 80-95% by 2050 compared to 1990, as part of a 
global effort to limit the average temperature increase below 2°C. 

(b)  The overall environmental impact of EU industry in all major industrial sectors 

is significantly reduced, and resource efficiency increased. 

(c)  The  overall  environmental  impact  of  production  and  consumption  is  reduced, 

in particular in the food, housing and mobility sectors. 

(d)  Waste  is  safely  managed  as  a  resource,  waste  generated  per  capita  is  in 
absolute  decline,  energy  recovery  is  limited  to  non-recyclable  materials  and 
landfilling of recyclable and compostable materials is effectively eradicated. 

(e)  Water stress in the EU is prevented or significantly reduced. 

This requires, in particular: 

(a)  Fully implementing the Climate and Energy Package and agreeing on the EU’s 

climate and energy policy framework for the period beyond 2020. 

(b)  Generalising  the  application  of  ‘Best  Available  Techniques’  and  enhancing 
efforts  to  promote  the  uptake  of  emerging  innovative  technologies,  processes 
and services. 

(c)  Giving  impetus  to  the  public  and  private  research  and  innovation  efforts 
required for rolling out innovative technologies, systems and business models 
which will speed up and lower the cost of transition to a low-carbon, resource-
efficient economy. 

(d)  Establishing  a  more  coherent  framework  for  sustainable  production  and 
consumption.  Reviewing  product  legislation  with  a  view  to  improving  the 
environmental  performance  and  resource  efficiency  of  products  throughout 
their  lifecycle.  Setting  targets  for  the  reduction  of  the  overall  impact  of 
consumption. 

(e)  Fully implementing EU waste legislation. This will include applying the waste 
hierarchy  and  the  effective  use  of  market-based  instruments  and  measures  to 
ensure that  landfilling is  effectively  phased out, energy recovery is limited to 

EN 

20 

   EN 

non-recyclable materials, recycled waste is used as a major, reliable source of 
raw material for the EU, hazardous waste is safely managed and its generation 
is reduced, illegal waste shipments are eradicated and internal market barriers 
for environmentally-sound recycling activities in the EU are removed. 

(f) 

Improving  water  efficiency  by  setting  targets  at  river  basin  level  and  using 
market mechanisms, such as water pricing. 

Priority  objective  3:  To  safeguard  EU  citizens  from  environment-related  pressures  and 
risks to health and wellbeing 

42. 

43. 

44. 

45. 

46. 

EU environment legislation has delivered significant benefits for the health and well-
being of the public. However, water, air pollution and chemicals remain among the 
general  public's  top  environmental  concerns  in  the  EU57.  The  World  Health 
Organisation  (WHO)  estimates  that  environmental  stressors  are  responsible  for 
between  15  and  20 %  of  all  deaths  in  53  European  countries58.  According  to  the 
OECD,  urban  air  pollution  is  set  to  become  the  primary  environmental  cause  of 
mortality worldwide by 2050.  

A  substantial  portion  of  the  EU's  population  remains  exposed  to  levels  of  air 
pollution exceeding WHO recommended standards59. Action is especially needed in 
areas  where  people,  particularly  sensitive  or  vulnerable  groups  of  society,  and 
ecosystems are exposed to high levels of pollutants, such as in cities or in buildings. 

Access  to  water  of  satisfactory  quality  remains  problematic  in  a  number  of  rural 
areas in the EU, while ensuring the good quality of Europe’s bathing waters benefits 
both human health and the EU’s tourism industry. Adverse consequences of floods 
for  human  health  and  economic  activity  are  being  experienced  more  frequently, 
partly due to changes to the hydrological cycle and land use. 

The failure to fully implement existing policy is preventing the EU from achieving 
adequate  air  and  water  quality  standards.  The  EU  will  update  targets  in  line  with 
latest science and more actively seek to ensure synergies with other policy objectives 
in  areas  such  as  climate  change,  biodiversity  and  the  marine  and  terrestrial 
environment.  For  example,  reducing  certain  air  pollutants  can  make  an  important 
contribution to climate mitigation. Further work in this direction will be informed by 
a comprehensive review of EU air quality legislation and the Blueprint to Safeguard 
Europe’s Water Resources. 

Tackling  pollution  at  source  remains  a  priority  and  the  implementation  of  the 
Industrial  Emissions  Directive  will  further  reduce  emissions  from  major  industrial 
sectors. Achieving the goals set out in the Roadmap to a Single European Transport 
Area  will  also  lead  to  more  sustainable  mobility  in  the  EU,  thereby  addressing  a 
major source of noise and local air pollution. 

57 
58 
59 

Special Eurobarometer 365 (2011). 
EEA, The European environment – state and outlook 2010 ('SOER 2010'). 
SOER 2010. 

EN 

21 

   EN 

                                                 
47. 

48. 

49. 

50. 

51. 

An estimated 40 % of the EU’s population lives in urban areas with levels of noise at 
night above the recommended WHO levels. 

Horizontal  chemicals  legislation  (REACH  and  the  Classification,  Labelling  and 
Packaging  Regulations)  provides  baseline  protection  for  human  health  and  the 
environment  and  promotes  the  uptake  of  evolving  non-animal  testing  methods. 
However,  there  is  still  uncertainty  about  the  impacts  on  human  health  and  the 
environment  from 
the  combined  effects  of  different  chemicals  (mixtures), 
nanomaterials,  chemicals  that  interfere  with  the  endocrine  (hormone)  system 
(endocrine disruptors) and chemicals in products. In recent years, more information 
has come to light on the need for action to deal with these challenges, especially if 
the EU is to attain the goal agreed at the World Summit on Sustainable Development 
in 2002, and reaffirmed at the Rio+20 Summit, to have ensured ‘the minimisation of 
significant  adverse  effects’  of  chemicals  on  human  health  and  the  environment  by 
2020  and  to  respond  to  new  and  emerging  issues  and  challenges  in  an  effective, 
efficient,  coherent  and  coordinated  manner.  The  EU  will  further  develop  and 
implement  approaches  to  address  combination  effects  of  chemicals  and  safety 
concerns  related  to  endocrine  disruptors  and  set  out  a  comprehensive  approach  for 
minimising adverse effects of hazardous substances, including chemicals in products, 
supported by a comprehensive chemical exposure and toxicity knowledge base. The 
safety  and  sustainable  management  of  nanomaterials  will  be  ensured  as  part  of  a 
comprehensive  approach  involving  risk  assessment  and  management,  information 
and  monitoring.  Together  these  approaches  will  increase  the  chemical  knowledge 
base  and  provide  a  predictable  framework  driving  the  development  of  more 
sustainable solutions. 

Meanwhile, the growing market for bio-based products, chemicals and materials may 
offer  advantages  such  as  lower  GHG  emissions  and  new  market  opportunities,  but 
care  needs  to  be  taken  to  ensure  that  the  full  life-cycle  of  these  products  is 
sustainable  and  does  not  exacerbate  competition  over  land  or  increase  emission 
levels.  

Climate  change  will  further  aggravate  environment  problems  by  causing  prolonged 
droughts  and  heat  waves,  floods,  storms  and  forest  fires,  and  new  or  more  virulent 
forms of human, animal or plant disease. Dedicated action should be taken to ensure 
that the EU is adequately prepared to face the pressures and changes resulting from 
climate  change,  strengthening  its  environmental,  economic  and  societal  resilience. 
Since  many  sectors  are  and  will  be  increasingly  subject  to  climate  change  impacts, 
adaptation and disaster risk management considerations need to be further integrated 
into EU policies.  

In  addition,  the  measures  to  enhance  ecological  and  climate  resilience,  such  as 
ecosystem  restoration  and  green  infrastructure,  can  have  important  socioeconomic 
benefits, including for public health. The synergies and potential trade-offs between 
climate and other environmental objectives, such as air quality, need to be adequately 
managed.  For  example,  fuel  switching  in  response  to  climate  or  security  of  supply 
considerations could lead to substantial increases in particulate matter and dangerous 
emissions. 

52. 

In  order  to  safeguard  EU  citizens  from  environment-related  pressures  and  risks  to 
health and wellbeing, the programme shall ensure that by 2020: 

EN 

22 

   EN 

(a)  Air quality in the EU has significantly improved  

(b)  Noise pollution in the EU has significantly decreased. 

(c)  Citizens throughout the EU benefit from high standards for safe drinking and 

bathing water. 

(d)  The combination effects of chemicals and safety concerns related to endocrine 
disruptors  are  effectively  addressed,  and  risks  for  the  environment  and  health 
associated  with  the  use  of  hazardous  substances,  including  chemicals  in 
products, is assessed and minimised. 

(e)  Safety concerns related to nanomaterials are effectively addressed as part of a 

coherent approach across different legislation.  

(f)  Decisive progress is made in adapting to climate change impacts. 

This requires, in particular: 

(a) 

(b) 

Implementing  updated  EU  policy  on  air  quality,  aligned  with  the  latest 
scientific knowledge, and measures to combat air pollution at source. 

Implementing  updated  EU  noise  policy  aligned  with  the  latest  scientific 
knowledge, and measures to reduce noise at source. 

(c)  Boosting  efforts  to  implement  the  Drinking  Water  Directive,  in  particular  for 

small drinking water suppliers, and the Bathing Water Directive. 

(d)  Developing  an  EU  strategy  for  a  non-toxic  environment,  supported  by  a 
comprehensive chemical exposure and toxicity knowledge base and conducive 
to innovation of sustainable substitutes. 

(e)  Agreeing  and  implementing  an  EU  climate  adaptation  strategy,  including  the 
integration  of  climate  change  adaptation  and  disaster  risk  management 
considerations into key EU policy initiatives and sectors. 

THE ENABLING FRAMEWORK 

53. 

Achieving  these  priority  thematic  objectives  will  require  an  enabling  framework 
which supports effective action. Measures will be taken to improve four key pillars 
of  this  enabling  framework:  to  improve  the  way  EU  environmental  laws  are 
implemented  across  the  board;  to  strengthen  the  scientific  evidence  base  for 
environment policy; to secure investments and create the right incentives to protect 
the  environment;  and  finally,  to  improve  environmental  integration  and  policy 
coherence both within environment policy and with other policies. These horizontal 
measures will benefit EU environment policy beyond the scope and timeframe of this 
programme. 

EN 

23 

   EN 

Priority objective 4: To maximise the benefits of EU environment legislation 

54. 

55. 

56. 

57. 

58. 

59. 

60. 

60 
61 

The benefits of ensuring that EU environment legislation is actually implemented are 
threefold: providing a level playing field for economic actors operating in the Single 
Market, stimulating innovation, and promoting first-mover advantages for European 
companies  in  many  sectors.  The  costs  associated  with  failure  to  implement 
legislation,  by  contrast,  are  high,  broadly  estimated  at  around  €50  billion  a  year, 
including  costs  related  to  infringement  cases60.  In  2009  alone  there  were  451 
infringement  cases  related  to  EU  environment  legislation.  The  Commission  also 
receives  numerous  complaints  directly  from  EU  citizens,  many  of  which  could  be 
better addressed at Member State or local level.  

Improving the implementation of the EU environment acquis at Member State level 
will  therefore  be  given  top  priority  in  the  coming  years.  There  are  significant 
differences in implementation between and within Member States. There is a need to 
equip those involved in implementing environmental legislation at national, regional 
and local levels with the knowledge and capacity to improve the delivery of benefits 
from this legislation. 

The  high  number  of  infringements,  complaints  and  petitions  in  the  area  of 
environment  shows  the  need  for  an  effective,  workable  system  of  checks  and 
balances  at  national  level  to  help  identify  and  resolve  implementation  problems, 
along with measures to prevent them from arising in the first place. In this respect, 
efforts  in  the  period  up to 2020  will focus on delivering improvements in four key 
areas. 

First, the way knowledge about implementation is collected and disseminated will be 
improved  to  help  the  general  public  and  environmental  professionals  fully 
understand  how  national  and  local  administrations  put  Union  commitments  into 
effect61.  Implementation  challenges  specific  to  an  individual  Member  State  will  be 
targeted  for  assistance,  similar  to  the  tailored  approach  followed  in  the  European 
Semester process. For instance, partnership implementation agreements involving the 
Commission and individual Member States will be drawn up, addressing issues such 
as where to find financial support for implementation and better information systems 
to track progress. 

Second, the EU will extend requirements on inspections and surveillance to the wider 
body  of  EU  environment  law,  complementing  these  with  an  EU-level  capacity  that 
can address situations where there is due reason for concern.  

Third,  the  way  in  which  complaints  about  implementation  of  EU  environment  law 
are handled and remedied at national level will be improved. 

Fourth,  EU  citizens  will  gain  better  access  to  justice  in  environmental  matters  and 
effective  legal  protection,  in  line  with  international  treaties  and  developments 

The costs of not implementing the environmental acquis (COWI 2011). 
COM(2012) 95, OJ C 171 of 16.6.2012. 

EN 

24 

   EN 

                                                 
brought about by the entry into force of the Lisbon Treaty and recent case law of the 
European Court of Justice. Non-judicial conflict resolution will also be promoted as 
an alternative to litigation. 

61. 

62. 

The  general  standard  of  environmental  governance  across  the  EU  will  be  further 
improved  by  enhancing  cooperation  at  EU  level  between  professionals  working  on 
environmental  protection  (such  as  government  lawyers,  inspectors,  prosecutors, 
ombudsmen and judges) and encouraging them to share good practices. 

In  addition  to  helping  Member  States  improve  compliance62,  the  Commission  will 
continue  to  do  its  part  to  ensure  that  legislation  is  fit  for  purpose  and  reflects  the 
latest  science.  As  a  general  rule,  legal  obligations  which  are  sufficiently  clear  and 
precise  will  be  enshrined  in  Regulations,  which  have  direct  and  measurable  effects 
and lead to fewer inconsistencies in implementation. The Commission will step up its 
use of scoreboards and other means of publicly tracking Member States' progress in 
implementing specific pieces of legislation. 

63. 

In  order  to  maximise  the  benefits  of  EU  environment  legislation,  the  programme 
shall ensure that by 2020: 

(a)  EU  citizens  have  access  to  clear  information  showing  how  EU  environment 

law is being implemented. 

(b)  The implementation of specific environment legislation is improved. 

(c)  Respect for EU environmental law at all administrative levels is reinforced and 

a level playing field in the internal market is guaranteed. 

(d)  Citizens’ trust and confidence in EU environment law is enhanced. 

(e)  The principle of effective legal protection for citizens and their organisations is 

facilitated. 

This requires, in particular: 

(a)  Establishing  systems  at  national  level  which  actively  disseminate  information 
about how EU environment legislation is being implemented, coupled with an 
EU-level overview of individual Member States’ performance. 

(b)  Drawing  up  partnership  implementation  agreements  between  Member  States 

and the Commission. 

(c)  Extending  binding  criteria  for  effective  Member  State  inspections  and 
surveillance  to  the  wider  body  of  EU  environment  law,  and  developing  a 
complementary  capacity  at  EU  level  to  address  situations  where  there  is  due 
reason for concern, backed up by support for networks of professionals. 

(d)  Setting  up  consistent  and  effective  mechanisms  at  national  level  for  the 

handling of complaints about implementation of EU environment law. 

62 

COM(2008) 773, OJ C 76 of 25.3.2010. 

EN 

25 

   EN 

                                                 
(e)  Ensuring that national provisions on access to justice reflect the case law of the 
Court  of  Justice  of  the  European  Union,  and  promoting  non-judicial  conflict 
resolution  as  a  means  of  finding  amicable  solutions  for  conflicts  in  the 
environmental field. 

Priority objective 5: To improve the evidence base for environment policy 

64. 

65. 

66. 

67. 

68. 

Evidence  for  EU  environment  policy  is  based  on  environmental  monitoring,  data, 
indicators and assessments linked to the implementation of EU legislation, as well as 
formal  scientific  research  and  ‘citizen  science’  initiatives.  There  has  been 
considerable  progress  on  strengthening  this  evidence  base,  raising  awareness  and 
improving  the  confidence  of  policy-makers  and  the  public  in  the  evidence-based 
approach  to  policy,  facilitating  their  understanding  of  complex  environmental  and 
societal challenges. 

Steps should be taken at EU and international level to further strengthen and improve 
the  science-policy  interface  for  environment,  such  as  through  the  appointment  of 
Chief  Scientific  Advisors,  as  already  done  by  the  Commission  and  some  Member 
States.  

However,  the  pace  of  current  developments  and  uncertainties  surrounding  likely 
future trends requires further steps to maintain and strengthen this evidence base to 
ensure policy in the EU continues to draw on a sound understanding of the state of 
the environment, possible response options and their consequences. 

Over  past  decades,  there  have  been  improvements  in  the  way  environmental 
information and statistics are collected and used, at EU and at Member State level, as 
well  as  globally.  However,  data  collection  and  quality  remain  variable  and  the 
plethora  of  sources  can  make  access  difficult.  Continuous  investment  is  therefore 
needed  to  ensure  that  credible,  comparable  and  quality-assured  data  and  indicators 
are available and accessible to those involved in defining and implementing policy. 
Environmental information systems need to be designed to enable new information 
on emerging themes to be easily incorporated.  

Further implementation of the Shared Environmental Information System63 principle 
of  ‘produce  once,  use  often’  and  the  common  approaches  and  standards  on 
acquisition  and  collation  of  spatial  information  under  the  INSPIRE64  and  GMES65 
systems  will  help  avoid  duplication  of  effort  and  eliminate  unnecessary 
administrative  burdens  on  public  authorities,  as  will  efforts  to  streamline  reporting 
obligations  under  different  pieces  of  legislation.  Member  States  should  make 
information  gathered  to  assess  environmental  impacts  of  plans,  programmes  and 
projects  (e.g.  through  Environmental  or  Strategic  Impact  Assessments)  more 
accessible to the public. 

63 
64 

65 

COM(2008) 46, OJ C 118 of 15.5.2008. 
Directive  2007/2/EC  on  Infrastructure  for  Spatial  Information  in  Europe  (INSPIRE),  OJ  L  108  of 
25.4.2007. 
Regulation  No  911/2010/EU  on  the  Global  Monitoring  for  Environment  and  Security  (GMES),  OJ  L 
276 of 20.10.2010. 

EN 

26 

   EN 

                                                 
69. 

There  are  still  significant  gaps  in  knowledge,  some  of  them  relevant  to  this 
programme's  priority  objectives.  Investing  in  further  research  to  fill  these  gaps  is 
therefore essential to ensure that public authorities and businesses have a sound basis 
for  taking  decisions  which  fully  reflect  true  social,  economic  and  environmental 
benefits and costs. Four gaps stand out: 

– 

– 

– 

– 

Advanced  research  to  fill  data  and  knowledge  gaps  and  adequate  modelling 
tools are needed to better understand complex issues related to environmental 
change,  such  as  climate  change  and  disaster  impacts,  the  implications  of 
species  loss  for  ecosystem  services,  environmental  thresholds  and  ecological 
tipping points. While available evidence fully warrants precautionary action in 
these areas, further research into planetary boundaries, systemic risks and our 
society’s  ability  to  cope  with  them  will  support  the  development  of  the  most 
appropriate  responses.  This  should  include  investment  in  closing  data  and 
knowledge gaps, mapping and assessing ecosystem services, understanding the 
role  of  biodiversity  in  underpinning  them  and  how  they  adapt  to  climate 
change. 

The transition to an inclusive green economy requires proper consideration of 
the  interplay  between  socio-economic  and  environmental  factors.  Improving 
our  understanding  of  sustainable  consumption  and  production  patterns,  how 
costs of action or inaction can be considered more accurately, how changes in 
individual  and  societal  behaviour  contribute  to  environmental  outcomes  and 
how  Europe’s  environment  is  affected  by  global  megatrends  can  help  better 
target  policy  initiatives  towards  improving  resource  efficiency  and  relieving 
pressures on the environment.  

There  are  still  uncertainties  surrounding  the  human  health  and  environmental 
implications  of  endocrine  disruptors,  mixtures,  chemicals  in  products  and 
nanomaterials.  Filling  these  gaps  can  accelerate  decision-making  and  enable 
the  further  development  of  the  chemicals  acquis  to  better  target  areas  of 
concern,  while  stimulating  more  sustainable  use  of  chemicals.  An  improved 
understanding  of  the  environmental  factors  affecting  human  health  would 
allow preventive policy actions to be taken. 

Ensuring  all  sectors  contribute  to  efforts  to  combat  climate  change  requires  a 
clear overview of GHG measurement, monitoring and data collection, which is 
currently incomplete for key sectors, such as agriculture. 

Horizon  2020  will  provide  the  opportunity  to  focus  research  efforts  and  to  deploy 
Europe's  innovation  potential  by  bringing  together  resources  and  knowledge  across 
different fields and disciplines within the EU and internationally.  

70. 

New  and  emerging  issues  arising  from  rapid  technological  developments  that 
outpace  policy,  such  as  nanomaterials,  unconventional  energy  sources,  carbon 
capture  and  storage  and  electromagnetic  waves,  pose  risk  management  challenges 
and  can  give  rise  to  conflicting  interests,  needs  and  expectations.  This  in  turn  can 
lead  to  increasing  public  concern  and  potential  hostility  towards  new  technologies. 
There  is  therefore  a  need  to  ensure  a  broader,  explicit  societal  debate  about  the 
environmental risks and possible trade-offs that we are willing to accept in the light 
of  sometimes  incomplete  or  uncertain  information  about  emerging  risks  and  how 

EN 

27 

   EN 

they  should  be  handled.  A  systematic  approach  to  environmental  risk  management 
will improve the EU’s capacity to identify and act upon technological developments 
in a timely manner, while providing reassurance to the public. 

71. 

In order to improve the evidence base for environment policy, the programme shall 
ensure that by 2020: 

(a)  Policy-makers  and  businesses  have  a  better  basis  for  developing  and 
implementing environment and climate policies, including measuring costs and 
benefits. 

(b)  Our  understanding  of  and  ability 

to  evaluate  and  manage  emerging 

environmental and climate risk is greatly improved. 

(c)  The environment policy-science interface is strengthened. 

This requires, in particular: 

(a)  Coordinating and focusing research efforts at EU and Member State levels on 
addressing  key  environmental  knowledge  gaps,  including  the  risks  of 
environmental tipping-points. 

(b)  Adopting a systematic approach to risk management. 

(c)  Simplifying, streamlining and modernising environmental and climate change 

data and information collection, management and sharing. 

Priority objective 6: To secure investment for environment and climate policy and get the 
prices right 

72. 

73. 

74. 

The  efforts  required  to  achieve  the  objectives  set  out  above  will  need  adequate 
investment from public and private sources. At the same time, while many countries 
are struggling to cope with the economic and financial crisis, the need for economic 
reforms  and  the  reduction  of  public  debts  offer  new  opportunities  to  move  rapidly 
towards a more resource-efficient, low-carbon economy. 

Attracting investment in some areas is currently difficult because of the lack of price 
signals  from the market,  or  distorted price signals  arising  from a failure to  account 
properly  for  environmental  costs  or  from  public  subsidies  for  environmentally 
harmful activities. 

The Union and Member States will need to put in place the right conditions to ensure 
that  environmental  externalities  are  adequately  addressed  and  that  the  right  market 
signals are sent to the private sector, with due regard to any adverse social impacts. 
This  will  involve  applying  the  polluter-pays  principle  more  systematically,  through 
phasing  out  environmentally  harmful  subsidies  and  shifting  taxation  away  from 
labour  towards  pollution.  As  natural  resources  become  increasingly  scarce,  the 
economic  rent  and  profits  associated  with  their  ownership  or  exclusive  use  may 
increase.  Public  intervention  to  ensure  that  such  rents  are  not  excessive  and  that 
externalities are taken into account will lead to more efficient use of these resources 
and  will  help  to  avoid  market  distortions,  as  well  as  generate  public  revenue. 

EN 

28 

   EN 

75. 

76. 

77. 

78. 

79. 

Environment and climate priorities will be pursued in the framework of the European 
Semester where these are relevant to the sustainable growth prospects of individual 
Member  States  to  which  country-specific  recommendations  are  addressed.  Other 
market-based instruments, such as payments for ecosystem services, should be used 
more extensively at EU and national level to incentivise private sector involvement 
and sustainable management of natural capital.  

The private sector should also be encouraged to take up opportunities offered under 
the  new  EU  financial  framework  to  step  up  their  involvement  in  efforts  to  achieve 
environmental  and  climate  objectives,  especially  in  relation  to  eco-innovation 
activities  and  the  uptake  of  new  technologies,  with  a  particular  focus  on  SMEs. 
Public-private  initiatives  for  eco-innovation  should  be  promoted  under  European 
Innovation Partnerships, such as the Innovation Partnership on Water66. Through the 
new framework for Innovative Financial Instruments, private sector access to finance 
for investments in environment – notably biodiversity and climate change –should be 
facilitated.  European  enterprises  should  be  further  encouraged 
to  disclose 
environmental  information  as  part  of  their  financial  reporting,  beyond  the  extent 
required under existing EU legislation67.  

In  its  proposals  for  the  2014-2020  EU  Multiannual  Financial  Framework,  the 
Commission has improved the mainstreaming of environment and climate objectives 
in all EU funding instruments to provide opportunities for Member States to achieve 
related objectives. It has also proposed to raise climate-related expenditure to at least 
20 % of the whole budget. In key policy areas such as agriculture, the Commission 
has proposed to enhance incentives for farmers to provide environmentally-beneficial 
public goods and services, matched by environment-related conditionalities. If these 
proposals  are  accepted,  EU  policies  will  be  matched  with  coherent  financial 
resources for implementation, and additional funds will be available for environment 
and climate change, effectively delivering concrete and coherent benefits at local and 
regional level. 

Beyond  such  mainstreaming,  inclusion  of  ‘integrated  projects’  in  the  LIFE 
programme will enable funds to be combined and better aligned with policy priorities 
in a more strategic, cost-effective way in support of environment and climate-related 
measures.  

The increased capital provided to the European Investment Bank (EIB) as part of the 
2012 Compact for Growth and Jobs provides an additional source of investment68. 

Experience  gained  in  the  2007-2013  programming  period  shows  that  although 
significant  funds  are  available  for  the  environment,  the  uptake  at  national  and 
regional  level  in  the  early  years  has  been  very  uneven,  potentially  jeopardising  the 
achievement  of  agreed  objectives  and  targets.  To  avoid  repeating  this  experience, 
Member States should integrate environment and climate objectives in their funding 
strategies  and  programmes  for  economic,  social  and  territorial  cohesion,  rural 
development  and  maritime  policy,  prioritise  the  early  uptake  of  funding  for  the 

66 
67 
68 

COM(2012) 216. 
COM(2011) 681, OJ C 37 of 10.2.2012. 
EUCO 76/12. 

EN 

29 

   EN 

                                                 
80. 

81. 

environment and climate change and reinforce the capacity of implementing bodies 
to deliver cost-effective and sustainable investments in order to secure the adequate 
and needed financial support for investments in these areas. 

In addition, it has been difficult to trace biodiversity and climate-related expenditure. 
To assess progress towards these objectives, a tracking and reporting system should 
be established based on OECD methodology (‘The Rio Markers’). This is important 
for the EU’s overall effort relating to multilateral agreements on climate change and 
biodiversity. In this context, the EU will contribute to the intergovernmental process 
launched  at  Rio+20  to  assess  financing  needs  and  propose  options  for  an  effective 
sustainable development financing strategy. 

Work to develop indicators to monitor economic progress which complement and go 
beyond GDP should continue. Securing transparent, sustainable investment depends 
on proper valuation of environmental goods. Further efforts to measure the value of 
our  ecosystems  and  the  cost  of  their  depletion,  together  with  corresponding 
incentives,  will  be  needed  to  inform  policy  and  investment  decisions.  Work  to 
develop  a  system  of  environmental  accounts,  including  physical  and  monetary 
accounts for natural capital and ecosystem services, will need to be stepped up. This 
supports the outcome of Rio+20, which recognises the need for broader measures of 
progress  to  measure  well-being  and  sustainability  to  complement  gross  domestic 
product.  

82. 

In order to secure investment for environment and climate policy and get the prices 
right, the programme shall ensure that by 2020: 

(a)  Environment and climate policy objectives are achieved in a cost-effective way 

and are supported by adequate finance. 

(b)  Private  sector  funding  for  environment  and  climate-related  expenditure  is 

increased. 

This requires, in particular: 

(a)  Progressively  phasing  out  environmentally  harmful  subsidies,  increasing  the 
use of market-based instruments, including taxation, pricing and charging, and 
expanding  markets  for  environmental  goods  and  services,  with  due  regard  to 
any adverse social impacts. 

(b)  Facilitating  access  to  innovative  financial  instruments  and  funding  for  eco-

innovation. 

(c)  Adequately  reflecting  environmental  and  climate  priorities  in  policies  to 

support economic, social and territorial cohesion. 

(d)  Dedicated efforts to ensure full and efficient use of available Union funding for 
environment action, including by significantly improving its early uptake under 
the Union's Multiannual Financial Framework 2014-2020 and devoting 20% of 
the  budget 
the 
to  climate  change  mitigation  and  adaptation 
mainstreaming of climate action and linked to clear benchmarks, target setting, 
monitoring and reporting. 

through 

EN 

30 

   EN 

(e)  Developing  and  applying  a  system  for  reporting  and  tracking  environment-
related  expenditure  in  the  EU  budget,  notably  on  climate  change  and 
biodiversity, by 2014. 

(f) 

Integrating  environment  and  climate-related  considerations  into  the  European 
Semester  process,  where  this  is  relevant  for  individual  Member  States' 
prospects  for  sustainable  growth  and  appropriate  for  country-specific 
recommendations. 

(g)  Developing and applying alternative indicators that complement and go beyond 
GDP  to  monitor  how  sustainable  our  progress  is  and  continuing  work  to 
integrate  economic  indicators  with  environmental  and  social  indicators, 
including natural capital accounting. 

Priority objective 7: To improve environmental integration and policy coherence 

83. 

84. 

that  difficult 

Although  integrating  environmental  protection  concerns  into  other  EU  policies  and 
activities  has  been  a  Treaty  requirement  since  1997,  the  overall  state  of  Europe’s 
environment indicates that progress to date, while commendable in some areas, has 
not  been  sufficient  to  reverse  all  negative  trends.  Achieving  many  of  the  priority 
objectives  of  this  programme  will  demand  even  more  effective  integration  of 
environmental  and  climate  considerations  into  other  policies,  as  well  as  more 
coherent, joined-up policy approaches that deliver multiple benefits. This should help 
ensure 
the 
implementation  phase,  and  that  unavoidable  impacts  can  be  mitigated  more 
effectively. The Strategic Environmental Assessment directive69 and Environmental 
Impact  Assessment  directive70,  when  correctly  applied,  are  effective  tools  for 
ensuring  environmental  protection  requirements  are  integrated  in  plans  and 
programmes  as  well  as  in  projects.  Local  and  regional  authorities,  which  are 
generally  responsible  for  decisions  on  use  of  land  and  marine  areas,  have  a 
particularly important role to play in assessing environmental impacts and protecting, 
conserving and enhancing natural capital, also to achieve greater resilience to climate 
change impacts and natural disasters. 

trade-offs  are  managed  early  on,  rather 

than 

in 

The  envisaged  expansion  of  energy  and  transport  networks,  including  offshore 
infrastructure,  will  need  to  be  compatible  with  nature  protection  and  climate 
adaptation  needs  and  obligations.  Incorporating  green  infrastructure  into  related 
plans and programmes can help overcome fragmentation of habitats and preserve or 
restore ecological connectivity, enhance ecosystem resilience and thereby ensure the 
continued  provision  of  ecosystem  services,  including  carbon  sequestration  and 
climate  adaptation,  while  providing  healthier  environments  and  recreational  spaces 
for people to enjoy. 

85. 

This  programme  includes  a  number  of  priority  objectives  designed  to  enhance 
integration.  In  its  proposals  for  the  CAP,  CFP,  Trans-European  Networks  (TENs) 

69 
70 

Directive 2001/42/EC, OJ L 197 of 21.7.2001. 
Directive 85/337/EEC, OJ L 175 of 5.7.1985. 

EN 

31 

   EN 

                                                 
and  Cohesion  policy  reforms,  the  Commission  has  included  measures  to  further 
support environmental integration and sustainability. For this programme to succeed, 
these policies should further contribute towards meeting environment-related targets 
and  objectives.  Similarly,  efforts  primarily  intended  to  achieve  environmental 
improvements should be designed to deliver co-benefits for other policies wherever 
possible.  For  instance,  efforts  to  restore  ecosystems  can  be  targeted  to  benefit 
habitats and species and to sequester carbon dioxide, while improving the delivery of 
ecosystem  services  vital  for  many  economic  sectors,  such  as  pollination  or  water 
purification for agriculture, and creating green jobs. 

86. 

In order to improve environmental integration and policy coherence, the programme 
shall ensure that by 2020: 

(a)  Sectoral  policies  at  EU  and  Member  State  level  are  developed  and 
implemented  in  a  way  that  supports  relevant  environment  and  climate-related 
targets and objectives. 

This requires, in particular: 

(a) 

(b) 

integrating environmental and climate-related conditionalities and incentives in 
policy initiatives, including reviews and reforms of existing policy, as well as 
new initiatives, at EU and Member State level; 

carrying  out  systematic  ex-ante  assessments  of  the  environmental,  social  and 
economic impacts of policy initiatives at EU and Member State level to ensure 
their coherence and effectiveness. 

MEETING LOCAL, REGIONAL AND GLOBAL CHALLENGES 

Priority objective 8: To enhance the sustainability of EU cities 

87. 

88. 

The EU is densely populated and by 2020, 80 % of the EU population is likely to live 
in urban and peri-urban areas. Quality of life will be directly influenced by the state 
of  the  urban  environment.  The  environmental  impacts  of  cities  also  spread  well 
beyond their physical limits, as they rely heavily on peri-urban and rural regions to 
meet demand for food, energy, space and resources, and to accommodate waste. 

Most  cities  face  a  common  core  set  of  environmental  problems,  including  poor  air 
quality,  high  levels  of  noise,  GHG  emissions,  water  scarcity,  floods  and  storms, 
contaminated sites, brownfields and waste. At the same time, EU cities are standard-
to 
setters 
environmental challenges71. An ever-growing number of European cities are putting 
environmental sustainability at the core of their urban development strategies. 

in  urban  sustainability  and  often  pioneer 

innovative  solutions 

89. 

EU citizens, whether urban or rural dwellers, benefit from a range of EU policies and 
initiatives  that  support  sustainable  development  of  urban  areas.  However,  this 

71 

See, for example, the ‘Cities of tomorrow’ report (European Commission, 2011) and SWD(2012) 101. 

EN 

32 

   EN 

                                                 
requires  effective,  efficient  coordination  between  different  levels  of  administration 
and across administrative boundaries and systematically involving regional and local 
authorities in the planning, formulation and development of policies impacting on the 
quality of the urban environment. The enhanced coordination mechanisms at national 
and  regional  level  proposed  under  the  Common  Strategic  Framework  for  the  next 
funding period and the creation of an ‘Urban Development Platform’72 would help to 
ensure  this,  as  well  as  involve  more  stakeholder  groups  and  the  general  public  in 
decisions  that  affect  them.  Local  and  regional  authorities  will  also  benefit  from 
further  development  of  tools  to  streamline  environmental  data  collection  and 
management, and to facilitate the exchange of information and best practice, as well 
as efforts to improve implementation of environment law at Union, national and local 
levels73. This is in line with the commitment made at the Rio+20 Summit to promote 
an  integrated  approach  to  planning,  building  and  managing  sustainable  cities  and 
urban  settlements.  Integrated  approaches  to  urban  spatial  planning,  in  which  long-
term  environmental  considerations  are  fully  taken  into  account  alongside  economic 
and  social  challenges,  are  essential  to  ensuring  that  urban  communities  are 
sustainable, efficient and healthy places to live and work. 

90. 

The  EU  should  further  promote  and,  where  appropriate,  expand  existing  initiatives 
that  support  innovation  and  best  practice  in  cities,  networking  and  exchanges 
between them and encourage cities to showcase their leadership on sustainable urban 
development74.  The  EU  institutions  and  the  Member  States  should  facilitate  and 
encourage the uptake of EU funding available under Cohesion policy and other funds 
to  support  cities  in  their  efforts  to  enhance  sustainable  urban  development,  raise 
awareness  and  encourage  local  actors  to  get  involved75.  The  development  of,  and 
agreement  on,  a  set  of  sustainability  criteria  for  cities  would  provide  a  common 
reference  base  for  such  initiatives  and  promote  a  coherent,  integrated  approach  to 
sustainable urban development. 

91. 

In order to enhance the sustainability of EU cities, the programme shall ensure that 
by 2020: 

(a)  A majority of cities in the EU are implementing policies for sustainable urban 

planning and design. 

This requires, in particular: 

(a)  Defining and agreeing a set of criteria to assess the environmental performance 

of cities, taking into account economic and social impacts. 

(b)  Ensuring  that  cities  have  information  about  and  access  to  financing  for 

measures to improve urban sustainability.  

72 
73 

74 

75 

COM(2011) 615, OJ C 37 of 10.2.2012. 
For  example  the  Water  Information  System  for  Europe  (WISE),  the  Biodiversity  Information  System 
for Europe (BISE) and the European Climate Adaptation Platform (CLIMATE-ADAPT). 
Examples  include  the  European  Innovation  Partnership  on  Smart  Cities  and  Communities  C(2012) 
4701, the European Green Capital Award and the research Joint Programming Initiative Urban Europe. 
The  Commission  has  proposed  to  ring-fence  a  minimum  5%  of  the  European  Regional  Development 
Fund (ERDF) in each Member State to fund integrated sustainable urban development. 

EN 

33 

   EN 

                                                 
Priority  objective  9:  To  increase  the  EU’s  effectiveness in addressing regional and  global 
environmental and climate challenges 

92. 

93. 

94. 

95. 

Environmental sustainability is key to reducing poverty and ensuring quality of life 
and  economic  growth76.  At  Rio+20,  world  leaders  renewed  their  commitment  to 
sustainable  development  and  recognised  the  inclusive  green  economy  as  an 
important  tool  for  achieving  sustainable  development,  and  the  crucial  role  of  a 
healthy environment in ensuring food security and reducing poverty. In the light of a 
growing population in an increasingly urbanised world, these challenges will include 
the  need  for  action  on  water,  oceans,  sustainable  land  and  ecosystems,  resource 
efficiency  (in  particular  waste),  sustainable  energy  and  climate  change,  including 
through the phase out of fossil fuel subsidies. They will need to be addressed through 
tailor-made  approaches  at  local,  national  or  Union  level,  as  well  as  committed 
engagement  in  international  efforts  to  develop  the  solutions  needed  to  ensure 
sustainable development globally. 

The  Rio+20  outcomes  will  need  to  be  reflected  in  the  internal  and  external  policy 
priorities  of  the  Union  and  its  Member  States.  The  Union  should  also  support  the 
creation  of  a  High  Level  Political  Forum  to  gradually  replace  the  Commission  for 
Sustainable Development and monitor the implementation of Rio+20 outcomes.  

Many of the priority objectives set out in this programme can only be fully achieved 
as part of a global approach and in cooperation with partner countries. That is why 
the  Union  and  its  Member  States  should  engage  in  relevant  international,  regional 
and bilateral processes in a strong, focused, united and coherent manner. They should 
continue  to  promote  an  effective,  rules-based  framework  for  global  environment 
policy, complemented by a more effective, strategic approach in which bilateral and 
regional political dialogues and cooperation are tailored towards the Union's strategic 
partners77,  candidate  and  neighbourhood  countries,  and  developing  countries, 
respectively, supported by adequate finance. 

The time span covered by this programme corresponds to key phases in international 
climate, biodiversity and chemical policy. To remain within the 2 °C ceiling, global 
GHG  emissions  need  to  be  cut  by  at  least  50 %  of  their  1990  levels  by  2050. 
However, only half the emission reductions required by 2020 have been pledged by 
Parties under the UNFCCC78. Without more resolute global action, climate change is 
unlikely to be curtailed. Even in a best-case scenario, countries will increasingly face 
inevitable impacts of climate change because of historical GHG emissions and will 
need  to  develop  climate  adaptation  strategies.  Under  the  Durban  Platform  for 
Enhanced  Action,  a  comprehensive  and  robust  agreement  applicable  to  all  is  to  be 
agreed  by  2015  and  implemented  as  of  2020.  The  EU  will  remain  engaged 
proactively in this process, including in discussions on how to close the gap between 
current  emission  reduction  pledges  by  developed  and  developing  countries,  and  on 
action needed to stay on an emission pathway compatible with the 2oC objective. The 

76 
77 

78 

Human Development Report (UNDP, 2011).  
Brazil, Canada, China, India, Japan, Mexico, Russia, South Africa, South Korea and the United States 
and other G20 countries (i.e. Argentina, Australia, Indonesia, Saudi Arabia and Turkey). 
‘Bridging the emissions gap’, (UNEP, 2011). 

EN 

34 

   EN 

                                                 
96. 

97. 

98. 

99. 

follow-up  to  Rio+  20  should  also  help  reduce  GHG  emissions,  thus  supporting  the 
fight against climate change. . In parallel, the EU should pursue and further intensify 
climate change partnerships with strategic partners and should take further action to 
mainstream environment and climate considerations in its development policy. 

The  global  biodiversity  targets79  under  the  Convention  on  Biological  Diversity 
(CBD) need to be met by 2020 as the basis for halting and eventually reversing the 
loss of biodiversity worldwide. The EU will contribute its fair share to these efforts, 
including by reaching the target to double biodiversity-related funding to developing 
countries by 2015 and maintain this level until 202080. There is already a global 2020 
target for the management of risks posed by chemicals. The EU will continue to play 
an active and constructive role in helping these processes achieve their objectives. 

The  EU  has  a  good  track-record  when  it  comes  to  membership  in  multilateral 
environmental agreements (MEAs), although a number of Member States have still 
not  ratified  key  agreements.  This  compromises  the  EU’s  credibility  in  related 
negotiations.  Member  States  and  the  EU  should  ensure  timely  ratification  of  all 
MEAs to which they are signatories. 

The EU should also leverage its position as one of the largest markets in the world to 
promote  policies  and  approaches  that  decrease  pressure  on  the  global  natural 
resource  base.  This  can  be  done  by  changing  patterns  of  consumption  and 
production,  as  well  as  ensuring  that  trade  and  internal  market  policies  support  the 
achievement  of  environmental  and  climate  goals  and  provide  incentives  to  other 
countries  to  upgrade  and  enforce  their  environmental  regulatory  frameworks  and 
standards.  The  EU  will  continue  to  promote  sustainable  development  through  the 
negotiation  and  implementation  of  dedicated  provisions  in  its  international  trade 
agreements  and  should  consider  other  policy  options  to  reduce  the  impacts  of  EU 
consumption on the environment in non-EU countries. An example of such a policy 
option  are  the  bilateral  Forest  Law  Enforcement,  Governance  and  Trade  (FLEGT) 
partnerships,  which  establish  a  framework  to  ensure  only  legally-harvested  timber 
enters the EU market from partner countries. 

The EU should continue to promote environmentally responsible business practices. 
New obligations under the EU’s Responsible Business Initiative81 for listed and large 
unlisted  extractive  and  primary  forest  logging  companies  to  report  payments  they 
make  to  governments  will  result  in  greater  transparency  and  accountability  in  the 
way  natural  resources  are  exploited.  As  a  leading  provider  of  environmental  goods 
and  services,  the  EU  should  promote  global  green  standards,  free  trade  in 
environmental  goods  and  services,  the  further  deployment  of  environment  and 
climate-friendly  technologies,  protection  of  investment  and  intellectual  property 
rights and the international exchange of best practice. 

100. 

In  order  to  increase  the  EU’s  effectiveness  in  addressing  regional  and  global 
environmental and climate challenges, the programme shall ensure that by 2020: 

79 
80 
81 

CBD Strategic Plan for Biodiversity 2011-2020. 
CBD Decision XI/4. 
Proposals  for  the  revision  of  the  Transparency  Directive  COM(2011)  683  and  the  Accounting 
Directives COM(2011) 684. 

EN 

35 

   EN 

                                                 
(a)  The  outcomes  of  Rio+20  are  fully  integrated  into  the  EU’s  external  policies 
and  the  EU  is  contributing  effectively  to  global  efforts  to  implement  agreed 
commitments, including those under the Rio conventions. 

(b)  The  EU  is  providing  effective  support  to  national,  regional  and  international 
efforts to address environment and climate challenges and to ensure sustainable 
development. 

(c)  The impact of consumption in the EU on the environment beyond its borders is 

reduced. 

This requires, in particular: 

(a)  Working  towards  the  adoption  of  Sustainable  Development  Goals  that:  a) 
address  priority  areas  of  an  inclusive  green  economy  and  wider  sustainable 
development  objectives,  such  as  energy,  water,  food  security,  oceans  and 
sustainable consumption and production, as well as cross-cutting issues such as 
equity, social inclusion, decent work, rule of law and good governance; b) are 
universally applicable, covering all three areas of sustainable development; c) 
are  assessed  and  accompanied  by  targets  and  indicators,  and  d)  are  coherent 
and integrated with the post-2015 development framework, and supportive of 
climate actions. 

(b)  Working  towards  a  more  effective  UN  structure  for  sustainable  development 
through  strengthening  UNEP  in  line  with  the  outcome  of  Rio+20,  while 
continuing to strive for an upgrade of UNEP's status to that of UN Agency, and 
supporting  ongoing  efforts 
to  enhance  synergies  between  Multilateral 
Environmental Agreements; 

(c)  Strengthening the impact of various sources of funding, including taxation and 
domestic  resource  mobilisation,  private  investment,  new  and  innovative 
sources, and creating options for using development aid to leverage these other 
sources of financing as part of the sustainable development financing strategy 
established in Rio, as well as in the EU’s own policies, including international 
commitments on climate and biodiversity finance. 

(d)  Engaging with partner countries in a more strategic way. This should involve 
focusing  cooperation:  1)  with  strategic  partners  on  the  promotion  of  best 
practice  in  domestic  environment  policy  and  legislation  and  convergence  in 
multilateral  environmental  negotiations;  2)  with  countries  covered  by  the 
European  Neighbourhood  Policy  on  gradual  approximation  with  key  EU 
environment  and  climate  policy  and  legislation  and  on  strengthening 
cooperation to address regional environmental and climate challenges; 3) with 
developing  countries  to  support  their  efforts  to  protect  the  environment,  fight 
climate  change  and  reduce  natural  disasters,  and  implement  international 
environmental  commitments  as  a  contribution  to  poverty  reduction  and 
sustainable development. 

(e)  Engaging  in  multilateral  environmental  processes,  including  the  UNFCCC, 
CBD  and  the  chemicals-related  conventions,  as  well  as  other  relevant  fora, 
such  as  the  International  Civil  Aviation  Organization  and  the  International 
Maritime Organization, in a more consistent, proactive and effective way with 

EN 

36 

   EN 

a view to ensuring that commitments for 2020 are met at EU and global level, 
and to agree on international action to be taken beyond 2020.  

(f)  Ratifying all key multilateral environmental agreements well before 2020. 

(g)  Assessing the environmental impact, in a global context, of EU consumption of 

food and non-food commodities and possible related responses. 

MONITORING PROGRESS 

101. 

102. 

The Commission will ensure that implementation of the programme is monitored in 
the context of the Europe 2020 Strategy's regular monitoring process. An evaluation 
of  the  programme  will  be  carried  out  before  2020,  in  particular  on  the  basis  of  the 
EEA's State of the Environment report. 

The indicators used to monitor progress towards meeting priority objectives include 
those used by the EEA to monitor the state of the environment and those to monitor 
the  implementation  of  existing  environment  and  climate-related  targets  and 
legislation,  including  the  climate  and  energy  targets,  biodiversity  targets,  and 
resource  efficiency  milestones.  Additional  indicators  to  measure  overall  progress 
towards  a  resource-efficient  European  economy  and  society  and  its  contribution  to 
prosperity and well-being will be developed in coordination with stakeholders in the 
context of the Roadmap to a Resource-efficient Europe.  

EN 

37 

   EN