Proposal for a COUNCIL DECISION on the position to be adopted, on behalf of the European Union, at the Eighth Conference of the Parties to the Helsinki Convention on Transboundary Effects of Industrial Accidents with regard to the proposal for an amendment of Annex I
Date: 2014-10-23
Institutions: European Commission
Subjects: dangerous substance, frontier region, industrial hazard, international convention, revision of an agreement, safety standard













EUR-Lex - 52014PC0652 - EN











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52014PC0652

Proposal for a COUNCIL DECISION on the position to be adopted, on behalf of the European Union, at the Eighth Conference of the Parties to the Helsinki Convention on Transboundary Effects of Industrial Accidents with regard to the proposal for an amendment of Annex I /* COM/2014/0652 final - 2014/0301 (NLE) */









Explanatory Memorandum
1.           CONTEXT OF THE PROPOSAL
The European Union and
most of its Member States are Parties to the UNECE Convention on the
Transboundary Effects of Industrial Accidents[1]. The
Convention applies to the prevention of, preparedness for and response to
industrial accidents at sites where hazardous activities take place capable of
causing transboundary effects. 
The Seveso II Directive[2] is the legal instrument to fulfill the obligations
of the European Union arising out of the Convention. Annex
I to the Convention and Annex I to the Seveso II Directive list categories of and
individual hazardous substances for the purpose of defining hazardous
activities. In June 2015 the Seveso II Directive will be replaced by the Seveso
III Directive[3],
which amongst others, modifies Annex I.
2.           RESULTS OF CONSULTATIONS
WITH THE INTERESTED PARTIES AND IMPACT ASSESSMENTS
At its 7th meeting in 2012, the
Conference of the Parties (CoP) to the UNECE Convention on the Transboundary
Effects of Industrial Accidents mandated the Working Group on the Development
of the Convention (WGD) to draft a revised Annex I to the Convention to bring
it in line with the United Nations Globally Harmonized System of Classification
and Labelling of Chemicals (GHS) and to maintain consistency with the
corresponding European Union legislation (i.e. the Seveso III Directive). 
The Working Group finalised a proposal for
the amendment of Annex I to the Convention. EU Member States' experts and the Commission participated
in the discussions. The proposal was endorsed by the Bureau of the Convention
at its meeting in July 2014 and will be submitted in the CoP for adoption at
its December 2014 meeting. 
As this proposal aligns
Annex I to the Convention with Annex I to the Seveso III Directive, it would
not cause any environmental or social-economic impacts in the EU. 
3.           LEGAL ELEMENTS OF THE
PROPOSAL
The draft text adjusts the content of Annex
I to the Convention to that of Annex I to the Seveso III Directive.
Consequently it is fully in line with existing European Union legislation and all
relevant reservations expressed by the European Union regarding the current
Annex I to the Convention can be lifted once the proposed amendment is adopted
by the Conference of the Parties and has become effective.
4.           BUDGETARY IMPLICATION
The proposed decision
does not have budgetary implications for the Union.
In view of the above, at the eighth meeting of the UNECE
Convention on the Transboundary Effects of Industrial Accidents, the European Union
should support the adoption of the draft revised Annex I. 

2014/0301 (NLE)
Proposal for a
COUNCIL DECISION
on the position to be adopted, on behalf
of the European Union, at the Eighth Conference of the Parties to the Helsinki
Convention on Transboundary Effects of Industrial Accidents with regard to the
proposal for an amendment of Annex I
THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Treaty on the
Functioning of the European Union, and in particular Article 218(9) thereof,
Having regard to the proposal from the
European Commission,
Whereas:
(1)       The Union is a Party to
the UNECE Convention on the Transboundary Effects of Industrial Accidents1 (hereinafter referred to as "the
Convention").
(2)       Annex I to the Convention
contains categories and named hazardous substances for the purpose of defining
hazardous activities.
(3)       In
accordance with Article 26 paragraph 4 of the Convention any amendment to Annex
I shall become effective, for those Parties to the Convention which have not
notified their objection, twelve months after its communication to the Parties
by the Executive Secretary upon its adoption at the Conference of the Parties by
a nine-tenths majority of the Parties present and voting at the meeting, provided
at least sixteen Parties have not notified objections.
(4)       The text of the proposal
for an amendment to Annex I was agreed within the Working Group on the
Development of the Convention, endorsed by the Bureau of the Convention and
will be proposed for adoption at the next Conference of the Parties, taking
place in Geneva from 3 to 5 December 2014.
(5)       The amendment to Annex I
would fully align it to Annex I to Directive 2012/18/EU of the European
Parliament and of the Council of 4 July 20123.
(6)       The amendment to Annex I
to the Convention should therefore be approved.
(7)       The reservation introduced
by the European Union at the time of adoption of the first amendment to Annex I
of the Convention was based on current discrepancies between Annex I and the EU
legislation in force, which will no longer exist after Annex I has been
amended. This reservation should be lifted once the amendment to Annex I of the
Convention has become effective.
HAS ADOPTED THIS DECISION: 
Article 1
The position to be taken by the European
Union at the Eighth Conference of the Parties to the Convention shall be to support
the proposed amendment of Annex I to the Convention as contained in the Annex
to this Decision.
Article 2
The President of the Council is hereby
authorised to designate the person(s) empowered to withdraw on behalf of the Union
the remaining reservations contained in Annex I to Council Decision 98/685/EC
subject to the amendment to Annex I to the Convention referred to in Article 1
becoming effective pursuant to Article 26 (4) of the Convention.
Done at Brussels,
                                                                       For
the Council
                                                                       The
President
[1]               Council Decision 98/685/EC of 23 March 1998 on the conclusion by the
European Community of the Convention on the Transboundary Effects of Industrial
Accidents (OJ L 326 of 3.12.1998, p. 5).
[2]               Council
Directive 96/82/EC of 9 December 1996 on the control of major-accident hazards
involving dangerous substances (OJ L 10 of 14.01.1997, p. 13).
[3]               Directive 2012/18/EU of the European Parliament and
of the Council of 4 July 2012 on the control of major-accident hazards involving
dangerous substances, amending and subsequently repealing Council Directive
96/82/EC (OJ L 197, 24.7.2012, p. 1).
ANNEX
Attachment
to the Proposal for a 
COUNCIL DECISION
on the position to be adopted, on
behalf of the European Union, at the Eighth Conference of the Parties to the
Helsinki Convention on Transboundary Effects of Industrial Accidents with
regard to the proposal for an amendment of Annex I 
Proposal for amendment of Annex I to the
UNECE Convention on Transboundary Effects of Industrial Accidents
            Submitted by the
Working Group on the Development of the Convention

The Conference of the Parties,
Recognizing
the need to update the categories of substances and preparations and the named
substances and their threshold quantities, as contained in annex I to the
Convention, for the purposes of introducing the criteria of the United Nations
Globally Harmonized System of Classification and Labelling of Chemicals
(ST/SG/AC.10/30/Rev.4) and of maintaining consistency with the corresponding EU
legislation,
Bearing in mind its decision to undertake a revision of the hazardous substances
and their quantities as contained in annex I and its decision 2004/4 on
establishing the Working Group on the Development of the Convention,
Acknowledging the proposal to amend annex I, drawn up by the Working Group on the
basis of a thorough review (for reference see the minutes of two meetings:
WGD3/3-4 September 2013 and WGD4/28-29 April 2014) and supported by the Bureau,
Amends annex
I to the Convention on hazardous substances for the purposes of defining
hazardous activities as indicated below.
Proposed revision of annex I to the
Convention
Hazardous substances for the purposes of defining hazardous activities1
Where a substance or mixture named in Part II
also falls within one or more categories in Part I, the threshold quantity
given in Part II shall be used.
For the identification of hazardous activities,
Parties shall take into consideration the actual or anticipated hazardous
properties and/or quantities of all hazardous substances present or of
hazardous substances which it is reasonable to foresee may be generated during
loss of control of an activity, including storage activities, within a
hazardous activity. 
1. Part I.
Categories of substances and mixtures not
specifically named in Part II
 Category in accordance with the United Nations Globally Harmonized System (GHS) of Classification and Labelling of Chemicals || Threshold quantity (metric tons) 
   ||   
 1.             Acute toxic, Category 1, all exposure routes2 || 20 
 2.             Acute toxic:                 Category 2, all exposure routes3                 Category 3, inhalation exposure route4 || 200 
 3.             Specific Target Organ Toxicity (STOT) — Single Exposure (SE) STOT, Category 15 || 200 
 4.             Explosives — unstable explosives or explosives, where the substance, mixture or article falls under Division 1.1, 1.2, 1.3, 1.5 or 1.6 of Chapter 2.1.2 of the GHS criteria or substances or mixtures having explosive properties according to Test series 2 of Part I of the UN Recommendations on the Transport of Dangerous Goods: Tests and criteria and do not belong to the hazard classes Organic peroxides or Self-reactive substances and mixtures6, 7 || 50 
 5.             Explosives, where the substance, mixture or article falls under Division 1.4 of Chapter 2.1.2 of the GHS8 || 200 
 6.             Flammable gases, Category 1 or 29 || 50 
 7.             Aerosols10, Category 1 or 2, containing flammable gases Category 1 or 2 or flammable liquids Category 1 || 500 (net) 
 8.             Aerosols, Category 1 or 2, not containing flammable gases Category 1 or 2 nor flammable liquids Category 111 || 50 000 (net) 
 9.             Oxidizing gases, category 112 || 200 
 10.           Flammable liquids:                 Flammable liquids, Category 1, or                 Flammable liquids, Category 2 or 3, maintained at a temperature above their boiling point 13, or                 Other liquids with a flash point ≤ 60 °C, maintained at a temperature above their boiling point 14 || 50 
 11.           Flammable liquids:                 Flammable liquids, Category 2 or 3, where particular processing conditions, such as high pressure or high temperature, may create industrial accident hazards 15, or                 Other liquids with a flash point ≤ 60 °C where particular processing conditions, such as high pressure or high temperature, may create industrial accident hazards || 200 
 12.           Flammable liquids, Categories 2 or 3, not covered by 10 and 1116 || 50 000 
 13.           Self-reactive substances and mixtures and organic peroxides:                 Self-reactive substances and mixtures, Type A or B or                 Organic peroxides, Type A or B17 || 50 
 14.           Self-reactive substances and mixtures and organic peroxides:                 Self-reactive substances and mixtures, Type C, D, E or F or                 Organic peroxides, Type C, D, E, or F18 || 200 
 15.           Pyrophoric liquids and solids, Category 1 || 200 
 16.           Oxidizing liquids and solids, Category 1, 2 or 3 || 200 
 17.           Hazardous to the aquatic environment, Category Acute 1 or Chronic 119 || 200 
 18.           Hazardous to the aquatic environment, Category Chronic 220 || 500 
 19.           Substances and mixtures which react violently with water, such as acetyl chloride, titanium tetrachloride || 500 
 20.           Substances and mixtures which in contact with water emit flammable gases, Category 1 21 || 500 
 21.           Substances and mixtures which in contact with water liberate toxic gas (substances and mixtures which in contact with water or damp air, evolve gases classified for acute toxicity in category 1, 2 or 3, such as aluminium phosphide, phosphorus pentasulphide) || 200 
2. Part
II.
Named
substances
 Substance || Threshold quantity (metric tons) 
   ||   
 1a.           Ammonium nitrate22 || 10 000 
 1b.           Ammonium nitrate23 || 5 000 
 1c.           Ammonium nitrate24 || 2 500 
 1d.           Ammonium nitrate25 || 50 
 2a.           Potassium nitrate26 || 10 000 
 2b.           Potassium nitrate27 || 5 000 
 3.             Arsenic pentoxide, arsenic (V) acid and/or salts || 2 
 4.             Arsenic trioxide, arsenious (III) acid and/or salts || 0.1 
 5.             Bromine || 100 
 6.             Chlorine || 25 
 7.             Nickel compounds in inhalable powder form: nickel monoxide, nickel dioxide, nickel sulphide, trinickel disulphide, dinickel trioxide || 1 
 8.             Ethyleneimine || 20 
 9.             Fluorine || 20 
 10.           Formaldehyde (concentration ≥ 90 %) || 50 
 11.           Hydrogen || 50 
 12.           Hydrogen chloride (liquefied gas) || 250 
 13.           Lead alkyls || 50 
 14.           Liquefied flammable gases, Category 1 or 2 (including liquefied petroleum gas) and natural gas28 || 200 
 15.           Acetylene || 50 
 16.           Ethylene oxide || 50 
 17.           Propylene oxide || 50 
 18.           Methanol || 5 000 
 19.           4, 4′-Methylene bis (2-chloraniline) and/or salts, in powder form || 0.01 
 20.           Methyl isocyanate || 0.15 
 21.           Oxygen || 2 000 
 22.           Toluene diisocyanate (2,4 -Toluene diisocyanate and 2,6 -Toluene diisocyanate) || 100 
 23.           Carbonyl dichloride (phosgene) || 0.75 
 24.           Arsine (arsenic trihydride) || 1 
 25.           Phosphine (phosphorus trihydride) || 1 
 26.           Sulphur dichloride || 1 
 27.           Sulphur trioxide || 75 
 28.           Polychlorodibenzofurans and polychlorodibenzodioxins (including tetrachlorodibenzodioxin (TCDD)), calculated in TCDD equivalent29 || 0.001 
 29.           The following carcinogens or the mixtures containing the following carcinogens at concentrations above 5% by weight:                 4-Aminobiphenyl and/or its salts, Benzotrichloride, Benzidine and/or salts, Bis (chloromethyl) ether, Chloromethyl methyl ether, 1,2-Dibromoethane, Diethyl sulphate, Dimethyl sulphate, Dimethylcarbamoyl chloride, 1,2-Dibromo-3-chloropropane, 1,2-Dimethylhydrazine, Dimethylnitrosamine, Hexamethylphosphorictriamide, Hydrazine, 2- Naphthylamine and/or salts, 4-Nitrodiphenyl, and 1,3 Propanesultone || 2 
 30.           Petroleum products and alternative fuels:                 (a)            Gasolines and naphthas;                 (b)           Kerosenes (including jet fuels);                 (c)            Gas oils (including diesel fuels, home heating oils and gas oil blending streams);                 (d)           Heavy fuel oils;                 (e)            Alternative fuels serving the same purposes and with similar properties as regards flammability and environmental hazards as the products referred to in points (a) to (d) || 25 000 
 31.           Anhydrous ammonia || 200 
 32.           Boron trifluoride || 20 
 33.           Hydrogen sulphide || 20 
 34.           Piperidine || 200 
 35.           Bis(2-dimethylaminoethyl) (methyl)amin || 200 
 36.           3-(2-Ethylhexyloxy)propylamin || 200 
 37.           Mixtures of sodium hypochlorite classified as Aquatic Acute Category 1 [H400] containing < than 5% active chlorine and not classified under any of the other hazard categories in Part 1 of annex I. 30 || 500 
 38.           Propylamine31 || 2 000 
 39.           Tert-butyl acrylate31 || 500 
 40.           2-Methyl-3-butenenitrile31 || 2 000 
 41.           Tetrahydro-3,5-dimethyl-1,3,5,-thiadiazine-2-thione (dazomet)31 || 200 
 42.           Methyl acrylate31 || 2 000 
 43.           Methylpyridine31 || 2 000 
 44.           Bromo-3-chloropropane31 || 2 000 
                                Notes:
                        1               Criteria according the United Nations Globally
Harmonized System (GHS) of Classification and Labelling of Chemicals
(ST/SG/AC.10/30/Rev.4). Parties should use these criteria when classifying
substances or mixtures for the purposes of Part I of this annex, unless other
legally binding criteria have been adopted in the national legislation.
Mixtures shall be treated in the same way as the pure substance, provided they
remain within concentration limits set according to their properties in
accordance with the GHS unless a percentage composition or other description is
specifically given.
                2               According
to the criteria in chapters 3.1.2 and 3.1.3 of GHS.
                3               According
to the criteria in chapters 3.1.2 and 3.1.3 of GHS.
                4               Substances
that fall within acute toxic Category 3 via the oral route shall fall under
entry 2 acute toxic in those cases where neither acute inhalation toxicity
classification nor acute dermal toxicity classification can be derived, for
example due to lack of conclusive inhalation and dermal toxicity data.
                5               Substances
that have produced significant toxicity in humans, or that, on the basis of
evidence from studies in experimental animals can be presumed to have the
potential to produce significant toxicity in humans following single exposure.
Further guidance is given in figure 3.8.1. and table 3.8.1 of part 3 of
GHS.
                6               Testing
for explosive properties of substances and mixtures is only necessary if the
screening procedure according to appendix 6, part 3, of the Manual of Tests and
Criteria identifies the substance or mixture as potentially having explosive
properties.
                7               The
hazard class Explosives includes explosive articles. If the quantity of the
explosive substance or mixture contained in the article is known, that quantity
shall be considered for the purposes of this Convention. If the quantity of the
explosive substance or mixture contained in the article is not known, then, for
the purposes of this Convention, the whole article shall be treated as
explosive.
                        8                      If Explosives of Division 1.4 are unpacked or repacked, they shall
be assigned to the entry 4 (Explosive), unless the hazard is shown to still
correspond to Division 1.4, in accordance with GHS.
                9               According
to the criteria in chapter 2.2.2 of GHS.
                10             Aerosols
are classified according to the criteria in Chapter 2.3 of GHS and the UN
Recommendations on the Transport of Dangerous Goods, Manual of Tests and
Criteria, Part III, section 31 referred to therein.
                11             In
order to use this entry, it must be documented that the aerosol dispenser does
not contain flammable gas Category 1 or 2 nor flammable liquid Category 1.
                12             According
to the criteria in chapter 2.4.2 of GHS.
                13             According
to the criteria in chapter 2.4.2 of GHS.
                14             Liquids
with a flash point of more than 35 °C may be regarded as non-flammable liquids
for some regulatory purposes (e.g. transport) if negative results have been
obtained in sustained combustibility test L.2, in part III, section 32 of the
Manual of Tests and Criteria. This is, however, not valid under elevated
conditions such as high temperature or pressure, and therefore such liquids are
included in this entry.
                15             According
to the criteria in chapter 2.4.2 of GHS.
                16             According
to the criteria in chapter 2.4.2 of GHS.
                17             According
to the criteria in chapters 2.8.2 and 2.15.2.2 of GHS.
                        18             According to the criteria in chapters 2.8.2 and
2.15.2.2 of GHS.
                        19             According to the criteria in chapter 4.1.2 of GHS.
                        20             According to the criteria in chapter 4.1.2 of GHS.
                        21             According to the criteria in chapter 2.12.2 of GHS.
                        22             Ammonium nitrate (10,000): fertilizers capable of
self-sustaining decomposition.
                                This
applies to ammonium nitrate–based compound/composite fertilizers
(compound/composite fertilizers containing ammonium nitrate with phosphate
and/or potash), which are capable of self-sustaining decomposition according to
the Trough Test (see Manual of Tests and Criteria, part III, subsection 38.2),
and in which the nitrogen content as a result of ammonium nitrate is:
                                                (a)           between
15.75% and–24.5% by weight (15.75% and 24.5% nitrogen content by weight
as a result of ammonium nitrate correspond to 45% and 70% ammonium nitrate,
respectively) and which either contain not more 0.4%
total combustible/organic materials or fulfil the requirements of an
appropriate test of resistance to detonation (e.g., 4-inch-steel-tube test);
                                                (b)           15.75%
by weight or less and unrestricted combustible materials.
                        23             Ammonium nitrate (5,000): fertilizer grade.
                                This
applies to straight ammonium nitrate-based fertilizers and to ammonium
nitrate-based compound/composite fertilizers in which the nitrogen content as a
result of ammonium nitrate is:
                                                (a)           more
than 24.5% by weight, except for mixtures of straight ammonium nitrate-based
fertilizers with dolomite, limestone and/or calcium carbonate with a purity of
at least 90%;
                                                (b)           more
than 15.75% by weight for mixtures of ammonium nitrate and ammonium sulphate;
                                                (c)           more
than  28% (28% nitrogen content by weight as a result of ammonium nitrate
corresponds to 80% ammonium nitrate) by weight for mixtures of straight
ammonium nitrate-based fertilizers with dolomite, limestone and/or calcium
carbonate with a purity of at least 90%;
                                                (d)           And
which fulfil the requirements of an appropriate test of resistance to
detonation (e.g., 4-inch-steel-tube test).
                        24             Ammonium nitrate (2,500): technical grade.
                                This
applies to:
                                                (a)           Ammonium
nitrate and mixtures of ammonium nitrate in which the nitrogen content as a
result of ammonium nitrate is:
                                (i)            between
24.5% and–28% by weight and which contain not more than 0.4% combustible
substances;
                                                (ii)           more
than 28% by weight, and which contain not more than 0.2% combustible
substances;
                                                (b)           Aqueous
ammonium nitrate solutions in which the concentration of ammonium nitrate is
more than 80% by weight.
                        25             Ammonium nitrate (50): “off-specs” material and
fertilizers not fulfilling the requirements of an appropriate test of
resistance to detonation (e.g., 4-inch-steel-tube test).
                                This
applies to:
                                                (a)           Material
rejected during the manufacturing process and to ammonium nitrate and mixtures
of ammonium nitrate, straight ammonium nitrate-based fertilizers and ammonium
nitrate-based compound/composite fertilizers referred to in notes 23 and 24
that are being or have been returned from the final user to a manufacturer,
temporary storage or reprocessing plant for reworking, recycling or treatment
for safe use because they no longer comply with the specifications in notes 23
and 24;
                                                (b)           Fertilizers
referred to in note 22(a) and note 23 which do not fulfil the requirements of
an appropriate test of resistance to detonation (e.g., 4-inch-steel-tube test).
                        26             Potassium nitrate (10,000): composite potassium nitrate-based
fertilizers (in prilled/granular form) which have the same properties as pure
potassium nitrate.
                        27             Potassium nitrate (5,000): composite potassium
nitrate-based fertilizers (in crystalline form) which have the same hazardous
properties as pure potassium nitrate.
                        28             Upgraded biogas: for the purpose of the implementation
of the Convention, upgraded biogas may be classified under entry 14 of Part 2
of annex I where it has been processed in accordance with applicable standards
for purified and upgraded biogas ensuring a quality equivalent to that of
natural gas, including the content of methane, and which has a maximum of 1%
oxygen.
                        29             Polychlorodibenzofurans and polychlorodibenzodioxins.
                The quantities of
polychlorodibenzofurans and polychlorodibenzodioxins are calculated using the
following World Health Organization (WHO) human and mammalian toxic equivalency
factors for dioxins and dioxin-like compounds (TEF) as re-evaluated in 2005:
 WHO 2005 TEF 
   ||   ||   ||   
 2,3,7,8-TCDD || 1 || 2,3,7,8-TCDF || 0 
 1,2,3,7,8-PeCDD || 1 || 2,3,4,7,8-PeCDF || 0 
   ||   || 1,2,3,7,8-PeCDF || 0 
   ||   || 1,2,3,6,7,8-HxCDF || 0 
 1,2,3,4,6,7,8-HpCDD || 0 || 2,3,4,6,7,8-HxCDF || 0 
 OCDD || 0 || 1,2,3,4,6,7,8-HpCDF || 0 
   ||   || 1,2,3,4,7,8,9-HpCDF || 0 
   ||   || OCDF || 0 
 Abbreviations: Hx = hexa, Hp = hepta,  O = octa, P = penta, T = tetra. 
 Reference: Van den Berg et al, The 2005 World Health Organization Re-evaluation of Human and Mammalian Toxic Equivalency Factors for Dioxins and Dioxin-like Compounds, Toxicological Sciences, vol. 93, No. 2, pp. 223–241 (2006). 
                        30             Provided that the mixture in the absence of sodium
hypochlorite would not be classified as aquatic acute, Category 1.
                        31             In cases where this dangerous substance falls within
the category 10 flammable liquids or 11 flammable liquids, for the purposes of
the Convention the lowest qualifying quantities shall apply.