COMMISSION STAFF WORKING DOCUMENT EXECUTIVE SUMMARY OF THE IMPACT ASSESSMENT Accompanying the document 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  
SWD(2012) 397 final 

COMMISSION STAFF WORKING DOCUMENT 

EXECUTIVE SUMMARY OF THE IMPACT ASSESSMENT 

Accompanying the document 

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’ 

{COM(2012) 710 final} 
{SWD(2012) 398 final} 

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COMMISSION STAFF WORKING DOCUMENT 

EXECUTIVE SUMMARY OF THE IMPACT ASSESSMENT 

Accompanying the document 

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’ 

EN 

2 

   EN 

 
This  impact  assessment  accompanies  the  Commission  proposal  for  a  Decision  of  the 
European  Parliament  and  of  the  Council  establishing  a  General  Union  Environment  Action 
Programme  to  2020.  In  preparing  the  Decision,  the  Commission  engaged  in  a  broad  public 
consultation  and  took  into  consideration  the  views  of  the  other  European  Union  (EU) 
institutions. 

Environment  Action  Programmes  have  guided  the  development  of  EU  environment  policy 
since the early 1970s. The EU’s right to act is set out in Article 192 (3) of the Treaty on the 
Functioning of the EU. The Sixth Environment Action Programme (6th EAP) expired in July 
2012  and  the  European  Commission  has  made  a  commitment  to  delivering  a  new  EAP 
responding to demand from stakeholders, including the Council and the European Parliament, 
for a successor programme. The new programme intends to build on the value-added of the 6th 
EAP, while addressing its weaknesses. 

The assessment shows that the proposal provides EU value-added by:  

• 

• 

• 

• 

providing a strategic framework for environmental policy in the EU; 

ensuring complementarity and coherence;  

ensuring predictability and a level playing field;  

stimulating action at all levels of governance. 

The context in which this programme is being developed differs from that which prevailed at 
the  time  of  the  6th  EAP.  In  particular,  the  EU  has  adopted  the  Europe  2020  strategy  --  an 
overarching  strategy  for  all  EU  policies  to  create  ‘smart,  sustainable  and  inclusive  growth’. 
And while today many EU countries are struggling to cope with economic crisis, the need for 
structural  reforms  offers  new  opportunities  for  all  countries  to  move  rapidly  towards  an 
inclusive green economy. 

EU  Environment  policy  has  three  key,  mutually  reinforcing  contributions  to  make  in  this 
respect: 

1.  ensuring that Europe’s natural capital is sufficiently resilient to pressure and change 
2.  ensuring that its economy is highly resource efficient and low-carbon emitting 
3.  ensuring  that  the  health  and  wellbeing  of  EU  citizens  continue  to  benefit  from  high 

degrees of environmental protection. 

The  new  environment  action  programme  should  focus  on  reinforcing  efforts  to  reach  these 
core  thematic  objectives  over  the  period  up  to  2020,  guided  by  a  long-term  vision  for  the 
environment in 2050. 

This impact assessment examines the main challenges to and options for ensuring that these 
objectives are attained as effectively, efficiently and coherently as possible. 

Although  various  scientific  assessments  show  a  number  of  positive  trends  over  the  past 
decade, four underlying problems are hindering the achievement of these key environmental 
objectives (see Table ES1):  

1) inadequate implementation of and gaps in the existing environment policy acquis;  

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2)  lack  of  coherence  in  addressing  increasingly  interlinked  challenges,  which  also  requires 
efforts in other policy fields; 

3) problems related to incentives for investment in environment-related measures; 

4)  insufficiently  coordinated  data  and  information  on  the  environment  and  gaps  in  the 
knowledge base and emerging issues and trends that are not properly addressed at present. 

Table ES1: Indicative table of strength of the underlying problems 

Environmental Issue  

-

m
e
l
p
m
I

n
o
i
t
a
t
n
e

Pressure  on  ecosystems 
eutrophication) 

(from  air  pollution, 

++ 

Conservation  Status  (safeguard  the  EU’s  most 
important habitats and species) 

++ 

Underlying problems  

-
l

w
o
n
K

e
g
d
e

+ 

+ 

-
t
s
e
v
n
I

t
n
e
m

-
r
e
h
o
C

e
c
n
e

+ 

+++ 

+++ 

++ 

Biodiversity  (terrestrial  and  marine  species  and 
habitats) 

+++ 

++ 

++ 

+++ 

Soil degradation (soil erosion) 

Water quality (ecological and chemical status) 

Water  pollution  (from  point  sources  and  bathing 
water quality) 

Global mean temperature change 

Greenhouse gas emissions 

Energy Efficiency 

Renewable Energy Sources 

Decoupling (resource use from economic growth) 

Waste generation 

Waste management (recycling) 

Water stress (water exploitation) 

Transboundary  air  pollution  (NOx,  NMVOC,  SO2, 
NH3, primary particles) 

Air  quality  in  urban  areas  (particulate  matter  and 
ozone) 

g
n
i
e
b
l
l
e
w

+ 

++ 

+++ 

++ 

++ 

++ 

+ 

+ 

++ 

+++ 

++ 

+ 

+++ 

++ 

+ 

+ 

+ 

+ 

++ 

++ 

++ 

++ 

++ 

+ 

+ 

+ 

Chemicals 

++ 

+++ 

++ 

+ 

++ 

++ 

++ 

+ 

+++ 

+++ 

++ 

+++ 

+ 

++ 

+++ 

+ 

+ 

+ 

+ 

+ 

+ 

+ 

+ 

+++ 

+++ 

++ 

++ 

++ 

++ 

++ 

e
c
n
e
i
l
i
s
e
r

e
t
a
m

i
l
c

d
n
a
l
a
c
i
g
o
l
o
c
E

t

h
w
o
r
g
n
o
b
r
a
c
-
w
o
L

,
e
l
b
a
n
i
a
t
s
u
S

d
n
a
h
t
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a
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a
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u
H

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The new EAP will also aim to further strengthen both the urban and global dimensions of EU 
environment policy, as these spatial scales feature specific problems and challenges related to 
the  environment  and  climate  change  that  require  specially-targeted  approaches.  The 
substantive commitments arising from the UNCSD 2012 (Rio + 20) are also reflected in the 
programme. 

Reflecting these considerations, the policy options are examined in a two-step approach. 

In the first step, three options on policy content are considered: 

•  Option  1:  business-as-usual.  This  involves  continuing  with  existing  legislation  as 

currently implemented. 

•  Option  2:  smarter  implementation.  This  involves  more  effort  to  tackle  the  underlying 
problems, which are seen as the main obstacles hindering the chances of reaching the aims 
and  objectives  set  out  in  existing  policy  and  legislation.  It  covers  not  just  improving 
implementation,  but  making  it  smarter  by  ensuring  that  investment  incentives  are 
appropriate and that polices are coherent. 

•  Option  3:  smarter  implementation  and  responding  to  new  knowledge.  This  option 
covers  the  efforts  set  out  in  option  2,  plus  more  effort,  responding  to  changes  in  the 
knowledge base and emerging issues. 

The  second  step  addresses  the  question  of  what  kind  of  Environment  Action 
Programme, if any, would provide the most effective strategic framework to enable 
the three specific objectives to be met. Three options are explored: 

•  Option A: Discontinuation of the EAP policy approach 

•  Option B: Business as usual — A new EAP structured in the same way as the 6th EAP 

•  Option C: A new EAP focused on a limited set of priority objectives. 

Table  ES2  shows  the  overall  assessment  of  the  options  against  the  criteria  of  effectiveness, 
efficiency  and  coherence.  It  reflects  the  preferred  option  of  a  combination  of  option  3 
delivered through option C as that which best delivers in terms of the three criteria. As well as 
delivering  environmental  improvements,  a  strategic  new  EAP  that  applies  the  principles  of 
smart  regulation  and  promotes  coherence  is  also  expected  to  boost  competitiveness,  by 
improving resource efficiency. Table ES3 details the actions under this option, which respond 
to the specific objectives set and include complementary measures addressing the underlying 
drivers. 

Table ES2: Overall assessment of options 

Effectiveness 

Efficiency 

Coherence 

Step 1: choice of actions 

Option 1 

Option 2 

Option 3 (preferred option) 

Step 2: what kind of EAP 

EN 

0 

+ 

++ 

5 

0 

++ 

++ 

0 

+ 

++ 

   EN 

 
 
Option A 

Option B 

Option C (preferred option) 

- 

0 

+ 

- 

0 

+ 

- 

0 

++ 

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Table ES3: Actions under the 7EAP and relationship to specific objectives 

Specific 
Objectives 

Actions related primarily to a 
single Specific Objective  

Complementary measures addressing all three 
Specific Objectives  
(the enabling framework) 

Ensuring that 
Europe’s 
natural capital 
is sufficiently 
resilient to 
pressure and 
change 

To  fully  implement  the  EU  Biodiversity 
Strategy to 2020 

To  develop  a  more  strategic  approach  to 
protecting  and  enhancing  forests  and  the 
services they provide 

To  strengthen  the  integration  of  land  use 
aspects  into  decision  making  potentially 
including the setting of targets on soil and 
land  

Taking  further  steps  and  measures  to 
eliminate  emissions  from  urban  and 
industrial  wastewater,  fertiliser  use  and 
air 
for 
eutrophication  

responsible 

emissions 

To fully implement the Water Framework 
Directive including taking further steps to 
reduce  impacts  on  freshwater,  including 
nitrogen and phosphorus  

To  fully  implement  the  Marine  Strategy 
Framework  Directive  including  reducing 
marine  litter,  potentially  including  the 
setting of targets 

To  fully  implement  the  EU  Climate  and 
Energy Package by 2020  

To  fully  implement  EU  waste  legislation 
and  use  waste  as  a  resource  in  particular 
by  ensuring  application  of  the  waste 
the  effective  use  of 
hierarchy  and 
economic  instruments  including  virtually 
eliminating 
limiting 
energy recovery 

landfilling 

and 

To address internal market barriers facing 
recycling 
environmentally 
activities in the EU 

sound 

To  reduce 
the  overall  environmental 
impact  of  production  and  consumption 
focusing  in  particular  on  food,  housing 
potentially 
and  mobility 
including the setting of targets 

sectors, 

To  update  EU  policy  on  air  quality  and 
align  it  with  latest  scientific  knowledge, 
identifying  cost-effective  measures 
to 
combat  air  pollution  at  source  and 
full 
strengthening  efforts 
compliance  with  EU 
quality 
legislation 

reach 
air 

to 

latest 

To  update  EU  noise  policy  and  align  it 
knowledge, 
with 
scientific 
identifying  cost-effective  measures 
to 
reduce noise at source 

To step up implementation efforts for the 
Drinking  Water  Directive,  in  particular 
for  small  suppliers,  and  the  new  bathing 
water directive with the aim of achieving 
compliance levels over 95 % by 2020 

To  develop  a  strategy  for  a  non-toxic 
environment  addressing  the  combination 
effects  of  chemicals  and  safety  concerns 
to  endocrine  disruptors  and 
related 

Ensuring that 
its economy is 
highly 
resource 
efficient and 
low-carbon 
emitting 

Ensuring that 
the health and 
wellbeing of 
EU citizens 
continue to 
benefit from 
high degrees 
of 
environmental 
protection 

Improving implementation 
- 

- 
- 

- 

- 

Enabling more effective environmental inspections and 
surveillance 
Ensuring Access to Justice 
Supporting enhanced Complaint-handling and mediation 
mechanisms at national level 
To establish information systems at national level that actively 
disseminate information sufficient to show that EU environment 
law is effectively implemented 
To explore the practical role that partnership agreements might 
play in improving the implementation of specific environmental 
legislation 

Improving  the  scientific  and  knowledge  base  for 
environment policy 
- 

To improve the scientific evidence base for environment policy, 
including its accessibility, by simplifying, streamlining and 
modernising the collection, management and sharing of 
environmental data and information 
To develop a systematic approach to anticipate, evaluate and 
manage emerging environmental risk 
To fill existing knowledge gaps 

- 

- 

Ensuring the right incentives exist for investment 
- 

To ensure that environment and climate objectives are supported 
by adequate finance by: adequately reflecting environmental and 
climate priorities in the Partnership contracts; ensuring that at 
least 20 % of the EU budget 2014-2020 is climate related and 
increasing the uptake of available EU funding for environmental 
action by at least 25 % over current levels/2010 levels; and 
developing and applying a system for reporting and tracking 
environment-related expenditure 
To progressively phase out environmentally-harmful subsidies, 
increasingly use market-based instruments, including taxation 
To promote and increase private sector funding for environment 
and climate-related expenditure, in particular by facilitating 
access to innovative financial instruments 
To step up efforts to establish comprehensive measurements of 
how sustainable our progress is (Beyond GDP), including natural 
capital accounting 
Integration of environmental and resource-efficiency 
considerations into the European Semester 

- 

- 

- 

- 

Improving integration and coherency 

- 

To  integrate  environmental  and  climate-related  conditionalities 
and incentives in policy initiatives, at EU and Member State level 
and 
the 
to  carry  out  systematic  ex-ante  assessments  of 
environmental (social and economic) impacts of policy initiatives 
at EU and Member State level. 

Improving the sustainability of urban areas 

- 

To support the achievement of minimum sustainability criteria by 
a majority of cities in the EU. 

Ensuring effective international action 
- 

To focus cooperation with the EU’s Strategic Partners on the 
promotion of best practice in domestic environment policy and 
legislation, as well as convergence in multilateral environmental 
negotiations 

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Specific 
Objectives 

Actions related primarily to a 
single Specific Objective  

exposure 

developing a comprehensive approach for 
minimising 
hazardous 
substances.  To  address  effectively  safety 
concerns  related  to  nanomaterials  in  a 
coherent 
different 
legislation 

approach 

across 

to 

To  agree  and  implement  a  EU  climate 
adaptation  strategy,  including  integrating 
climate  change  adaptation  considerations 
into key EU policy initiatives and sectors 

To further reduce water stress in the EU 

Complementary measures addressing all three 
Specific Objectives  
(the enabling framework) 
To ratify key remaining or new MEAs well before 2020 and 
ensuring effective EU participation in other international 
processes 
To initiate and implement actions to protect global forests 
To focus cooperation with the countries covered by the European 
Neighbourhood Policy on gradual approximation with key EU 
environment policies 
To engage proactively in an international work plan on enhancing 
climate change mitigation ambition identifying and supporting the 
concrete implementation of cost effective options for a range of 
mitigation actions that can close the ambition gap by 2020 
To fully integrate the substantive outcome of UNCSD 2012 into 
our action at European, regional, international and global level 

- 

- 
- 

- 

- 

The strategic nature of the programme means that the scores will partly depend on the specific 
policy tools chosen to deliver the identified priority objectives. This will be determined only 
after  impact  assessments  have  been  carried  out.  This  will  affect  the  cost-effectiveness  and 
specific  social  and  economic  impacts,  but  also  the  role  of  national,  regional  and  local 
authorities in implementing policies and legislation agreed at EU level. 

technologies, 

improved  productivity  and  new  employment 
Greener,  more  efficient 
opportunities will support growth and jobs. A coherent and more integrated policy framework 
in support of resource efficiency and greener products will help also SMEs striving to become 
more resource efficient by reducing their production costs and facilitating their access to new 
markets.  Meanwhile,  ensuring  the  resilience  of  our  ecosystems  that  support  growth  and 
protecting  the  health  of  our  citizens  is  essential  to  ensure  the  sustainability  of  economic 
advancement. 

The Commission will monitor the implementation of the new EAP through the regular Europe 
2020 Strategy monitoring process. As most of the actions identified in this impact assessment 
relate to existing policy areas, current indicators are suitable for ensuring adequate monitoring 
of progress. For new or emerging issues, indicators will be identified, as appropriate, through 
impact assessments conducted as part of the process of determining the best policy response 
to address them. A full evaluation of the Programme will be performed before 2020. 

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