CELEX: 51996PC0315
Language: en
Date: 1996-07-10
Title: Proposal for a EUROPEAN PARLIAMENT AND COUNCIL DECISION on an action programme for integrated groundwater protection and management

Avis juridique important

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51996PC0315

Proposal for a EUROPEAN PARLIAMENT AND COUNCIL DECISION on an action programme for integrated groundwater protection and management  /* COM/96/0315 FINAL - COD 96/0181 */  

Official Journal C 355 , 25/11/1996 P. 0001

Proposal for a  European Parliament and Council Decision on an action programme for integrated groundwater  protection and management (96/C 355/01) (Text with EEA relevance) COM(96) 315 final - 96/181(COD)  (Submitted by the Commission on 9 September 1996)THE EUROPEAN PARLIAMENT AND THE  COUNCIL OF THE EUROPEAN UNION, Having regard to the Treaty establishing the European Community, and in particular Article 130s (3)  thereof, Having regard to the proposal from the Commission, Having regard to the opinion of the Economic and Social Committee, Acting in accordance with the procedure referred to in Article 189b of the Treaty, Whereas the declaration of the Ministerial seminar on groundwater held at the Hague on 26 and 27  November 1991 recognized the need for action in order to avoid long-term deterioration of fresh  water quantity and quality and called for the establishment of a programme of actions to be  implemented by the year 2000 at national and Community level aiming at sustainable management and  protection of fresh water resources; Whereas the Council in its resolutions of 25 February 1992 () and 20 February 1995 () requested  that a detailed action programme be drawn up for comprehensive protection and management of  groundwater as part of an overall policy on water protection; Whereas the Council emphasized the need for licensing systems and other instruments providing an  appropriate national management of groundwater, measures to provide for preventive, comprehensive  groundwater protection, inter alia, in view of diffuse sources, general provisions for the safety  of installations handling substances harmful to water, and general provisions to promote  agricultural practices consistent with groundwater protection; Whereas on 10 November 1995 the European Environment Agency presented an updated State of the  Environment Report (), confirming the need for action to protect groundwater resources; Whereas on 21 February 1996 the Commission adopted a communication to the European Parliament and  the Council on 'European Community Water Policy` (); whereas the Commission will further develop  its policy in relation to water management in a proposal for a framework directive on water  resources to ensure coherence and transparency for management of water in the Community; Whereas further integration of sustainable water management into other Community policies and in  particular into agriculture policy and regional policy is necessary; whereas this action programme  identifies a number of options which should be explored; whereas such integration should follow the  objectives set out in the Commission proposal for a Decision of the European Parliament and the  Council on the review of the European Community Programme of policy and action in relation to the  environment and sustainable development 'Towards Sustainability` (); Whereas this action programme recognizes the importance of protection of all groundwaters; whereas  a particular priority should be given to protection of groundwaters in the countryside where the  largest quantities of high quality groundwater are formed and found; Whereas the Community should provide common principles and the overall framework for action;  whereas the Community should facilitate exchange of information and experience with groundwater  management and protection measures undertaken at national, regional and local level; Whereas there are diverse conditions and needs existing in the Community which require different  specific solutions; whereas this diversity must be taken into account in the action envisaged;  whereas decisions should be taken as close as possible to situations where water is being used or  affected; whereas priority has been given to action within the responsibility of Member States  through specific national action programmes drawn up by Member States; Whereas the success of this action programme relies on close cooperation and coherent action at  Community level, Member States and local level as well as on consultation, information and active  involvement of social partners and individual citizens; Whereas in order to ensure the development of technologies, procedures and practices which consume  less water, the use of economic instruments, of voluntary agreements and other non-legal  instruments, of codes of good practice as well as of research should be encouraged; Whereas by the year 2000 national action programmes should be fully drawn up and functioning as  part of the implementation of this action programme; whereas progress with implementation of  Community and Member States action should be followed through regular appraisal and review; Whereas the European Environment Agency and the Community Authority in charge of statistics  (Eurostat), in close cooperation, will report on developments in the state of the aquatic  environment; Whereas it is necessary to ensure a better implementation and enforcement of existing environmental  legislation for the protection of fresh water and in particular of groundwater; Whereas it is necessary to improve the basis for water management policies in the form of reliable  and comparable data, statistics and indicators, and methods for assessment of costs and benefits of  action or lack of action; Whereas this Decision does not prejudice the legal basis of the measures which, while complying  with the objectives pursued by the actions provided for in this Decision, are adopted for the  implementation of the present programme or in the framework of other Community policies, HAVE DECIDED AS FOLLOWS : Sole Article The European Parliament and the Council agree to the objectives of an action programme for  integrated groundwater protection and management. The objective of the action programme is to ensure protection and use of groundwater through  integrated planning and sustainable management aiming at preventing further pollution, maintaining  the quality of unpolluted groundwater, restoring, where appropriate, polluted groundwater, as well  as preventing the over-exploitation of groundwater resources. The details of the action programme are contained in the Annex. This Decision applies without prejudice to the legal basis of measures which, while complying with  the objectives pursued by the actions provided for in this Decision, are adopted for the  implementation of the present programme or in the framework of other Community policies. () OJ No C 59, 6. 3. 1992, p. 2.  () OJ No C 49, 28. 2. 1995, p. 1.  () Report on 'Environment in the European Union - 1995`, European Environment Agency, Copenhagen,  1995.  () COM(96) 59 final, 21. 2. 1996.  () COM(95) 647 final, 3. 4. 1996.  () OJ No C 59, 28. 2. 1996, p. 24.  () Council Conclusions on Acidification, 1895th Council Meeting - Environment - 18.12.1995.  () COM(96) 12 final.   ANNEXA GROUNDWATER ACTION PROGRAMME FOR THE COMMUNITY A framework for the Community and Member States The action programme should be seen as a framework within which Member States and the Community in  close cooperation should develop the basis for sustainable groundwater protection and management.  The programme should function as a frame of reference for focusing of action, and as a forum for  exchange of information which should facilitate concerted action by Member States and the Community  as requested by the Council in its resolutions of 1992 and 1995. The action programme recognizes the importance of protection of all groundwaters through prevention  of further deterioration and depletion of groundwater in order to ensure a reliable supply of high  quality fresh water in all regions of the Community. The action programme further recognises the  particular importance of protection of groundwaters in the countryside where the largest quantities  of high quality groundwater are found and formed. The safeguarding of such groundwaters of  particular importance for the securing of a future supply of high quality fresh water constitutes  the greatest challenge for the Community water policy. In order to achieve this target the  programme addresses both point sources predominantly of urban and industrial origin and diffuse  sources originating mainly from agricultural practices or to a lesser degree from urban or  industrial activities, e g. through atmospheric deposition. In accordance with the principle of subsidiarity priority should be given to action taken at the  level of Member States. In line with this Member States should draw up and implement nationally  adapted action programmes for sustainable groundwater protection and management. The Community  should provide common principles and an overall framework for action. The national action programmes outlined in this Decision should be seen as instruments linking  obligations and recommendations at the Community level with instruments and measures established at  the level of Member States thus ensuring coherence and transparency in approaches. PART 1 THE FOUR MAIN LINES OF THE ACTION PROGRAMME Four main lines of action - Development of Community principles for integrated planning and management of water protection  and use for application on a national and subnational level with respect to a long term view of  applying a river basin management approach to groundwater management in order to ensure the quality  and quantity of groundwater. - Ensuring rules for quantitative maintenance of fresh water resources, including a rational  regulatory framework for fresh water abstraction. - Development of instruments for control of groundwater pollution from diffuse sources including  codes of good practice, and consideration of longer term measures for further integration of  sustainable water protection and management and agriculture policy. - Development of instruments for control of point source emissions and discharges including a  rational regulatory framework and incentives for development of environmentally friendly production  processes and procedures. These four lines of action should be supported by research and development programmes at the level  of the Community as well as appropriate national initiatives where necessary, e.g. relating to  vulnerability, leaching of pollutants, acidification, and to further development of methodologies  for assessing critical loads, management strategies, etc. Monitoring of water quality and quantity  and establishment of a thorough and reliable basis of information on the state of the aquatic  environment should be seen as indispensable for the success of the national action programmes. ACTION LINE 1 - PLANNING AND MANAGEMENT PRINCIPLES Objectives of integrated planning and management The objective of integrated planning and management is to ensure that protection and use of  groundwater takes place as part of an integrated management of fresh water resources. Groundwater  should be seen as an integral part of the hydrological cycle dynamically interacting with surface  water in terms of quantity as well as quality aspects. The objective further is that groundwaters  on a long term basis will be managed together with surface waters within a river basin management  approach. - A sustainable quantity management should secure the long term availability of non-polluted  groundwater, to ensure that groundwater is not over-exploited in order to avoid irretrievable  damage to aquifers in terms of quantity and quality, and to prevent deterioration or impoverishment  of ecosystems depending on presence of groundwater. As conditions for recharge and demands for  abstraction may vary considerably over the year such limits could be based on average figures  allowing for temporary depletion provided the achievement of the objective is not compromised.  Suitable quantity management should also, where appropriate, include replenishment of groundwater  to a sustainable level. - A sustainable quality management should protect and preserve all groundwaters, and where  appropriate improve the present quality on a long term basis. Actions to achieve this should be  based on the principles of prevention, action at source, and that the polluter should pay.  Protection of the quality must aim at eliminating or minimizing direct and indirect sources of  pollution and at securing the protective capacity of the soil cover above the groundwater table.  Sustainable quality management should also include restoration of the quality of polluted  groundwater where appropriate taking into account practicability and realistic timescales. A target  for restoration should as far as possible be drinking water standards or other quality standards  appropriate for the use of such recovered water. - Measures should be taken to ensure that fresh water resources, and in particular groundwaters are  protected and managed according to a plan covering in principle all available resources and the  interaction between them. Application, inter alia, for domestic, industrial and agricultural use,  for energy production and for recreational use should be accounted for in this general planning.  Planning and ensuing management plans should secure availability of sufficient supplies of fresh  water for supporting streams, lakes and wetlands and for sustaining vegetation cover and other  natural ecological functions. - Due account should be taken of the diversity of user interests and activities affecting or  potentially affecting the quality and quantities of groundwater and surface water, and ecological  functions depending on groundwater. - Substantial treatment to remove polluting substances such as nitrate and plant protection  products should not be considered a general strategy for sustainable groundwater management.  Substantial treatment to purify polluted groundwater in order to meet standards for water intended  for human consumption or other requirements should be used only where urgent need or specific  situations necessitate this, while treatment for the ordinary situation should be restricted to  filtering, aeration, disinfection, etc. Action at Member State level - Member States should review the performance of the water sector and of existing administrative  structures and legislation and where necessary the appropriate adjustments should be undertaken in  particular with a view to rationalisation and avoiding of overlapping and duplication of procedures  and rules. Where necessary and as appropriate new structures, legislation and rules should be  established. - Fresh water quantity and quality should be appropriately monitored and assessed in order to  provide information allowing Member States to follow changes in groundwater quantity and in  particular to allow for early detection of signs of and causes for over-exploitation and changes in  quality. Establishment of national monitoring programmes, supplemented as necessary, should make it  possible to follow closely and react to unacceptable changes in fresh water quantity and quality. - Establishment of a considerable monitoring capacity for fresh water as required pursuant to  Council Directives 91/676/EEC of 12 December 1991 concerning the protection of waters against  pollution by nitrates from agricultural sources () and 91/271/EEC of 21 May 1991 concerning urban  waste water treatment () should be pursued. The future framework Directive on water resources  should rationalize monitoring requirements of existing Community legislation while at the same time  requiring the establishment of appropriate monitoring for the purpose of drawing up an inventory of  point and diffuse sources of pollution of fresh water. - Member States should identify areas with groundwater of importance for present and future  drinking water supply and for particular ecological functions. Member States should further  identify areas where groundwater is particularly sensitive to pollution due, for example, to  particular geological or climatic conditions, the nature of the soil or to man-made influences. It  is already a long standing practice in Member States to designate special protection zones around  boreholes used for the abstraction of drinking water, within which, depending on the distance to  the borehole, all or certain industrial and agricultural activities are banned or restricted.  Identification and designation of zones for the purpose of protection of groundwaters and surface  waters are also required under existing Community legislation, inter alia, Directives 91/676/EEC  concerning the protection of waters against pollution by nitrates from agricultural sources and  91/271/EEC concerning urban waste water treatment. Further, designation of zones under other  Community legislation such as Council Directives 79/409/EEC of 2 April 1979 on the conservation of  wild birds () and 92/43/EEC of 21 May 1992 on conservation of habitats () often relates to aquatic  ecosystems depending on groundwater quality and quantity. - Designation of zones for protection of groundwater would benefit from a coordination with  designation for such other purposes. Choice of zoning designs and features could also be developed  or adjusted as appropriate to ensure coherence in designation and in choice of measures such as  restriction or banning of polluting activities that should be taken in order to ensure the  necessary level of protection required by the particular characteristics of these sensitive areas.  Depending on the nature of the sensitivity of the zone such measures could entail restriction or  banning as appropriate of urban and industrial discharges, use of manure and fertilisers, of  certain plant protection products and biocidal products. - Member States should review and where appropriate adjust and strengthen protection measures  around drinking water abstraction points. - Member States should cooperate closely on transboundary shared resources and on potential  transboundary impacts. Strategic spatial planning including comprehensive hydrological plans and  land use plans should be seen as essential tools supporting fresh water protection and management. - Management of transboundary aquifers should be done through the development of transnational  cooperation wherever national plans may have a significant impact on neighbouring countries, where  appropriate in the context of international conventions such as the existing international  convention on transboundary lakes and water courses. Such transnational cooperation in the long  term should be ensured through the river basin management principle to be laid down in the future  framework Directive on water resources. Action at Community level - Further integration into important areas of Community policy, notably into agricultural and  regional policies is called for by the clear signs of deterioration of groundwater quantity and  quality shown by monitoring in order to meet the objectives of integrated groundwater protection  and management. Such integration into Community policies on a long term perspective should be  undertaken at the level of the Community, and, for example, the European spatial development  perspective, to be drawn up by mid 1997, should be explored in this context. - The Commission should undertake to promote such integrated planning and management for projects  and actions affecting fresh water resources when initiated and/or funded by the Community. - The Commission should draw up recommendations for action to be taken with respect to developing  instruments for planning and management, including common principles for comparability of mapping  and monitoring methods, criteria for identifying ecologically sensitive areas needing additional  protection, zoning designs, codes of good practice. Exchange of information and experience, and  establishment of education, training schemes, and research programmes should be encouraged. ACTION LINE 2 - ABSTRACTION OF FRESH WATER A rational regulatory framework for abstraction of fresh water Water abstraction in large urban, industrial and agricultural areas, and tourist centres often  exceeds the natural recharge of fresh water. Problems with quantity maintenance, which may be  seasonal or permanent, are particularly severe in the southern Member States. Over-exploitation may result in lowered water tables causing supply problems for users and  transient or permanent depletion or serious reduction of water supply for the catchment areas thus  threatening groundwater dependent ecosystems. In coastal and island areas lowering of the  groundwater table may lead to sea water intrusion and salination of the groundwater. Lowering of  the water table may also lead to mobilization by oxidation of hazardous substances from layers  hitherto submerged by the groundwater table. Under certain geological conditions lowering of the  water table may cause settlement of strata which may cause damage to buildings and installations or  other consequences of land subsidence. Measures to compensate for lack of fresh water include interregional transfer of water and  artificial recharge. Transfer of large volumes of fresh water for use elsewhere as drinking water  or for irrigation, etc., from other areas may cause problems for ecosystems in the abstraction area  or down-stream on a water course due to draining of the usual water supply. Artificial recharge of  groundwater is a common practice to manage (drinking) water supply in some areas in Member States.  Provided such artificial recharge is performed with water of an appropriate quality and with  appropriate monitoring and the necessary control, this may be used as an economically feasible way  to replenish groundwater both in terms of quantity and quality on a permanent basis or on a shorter  term in areas subject to large seasonal variations in water demands and natural recharge  possibilities. Control is essential to ensure that no irretrievable damage will be caused to  groundwater or to ecosystems depending on supply of groundwater. Objectives The objective is to secure an appropriate quantity management of groundwater and surface water  within the river basin where groundwater and surface water interact with or depend on each other  based on knowledge of resources available. A minimum groundwater level and a minimum flow of water  from groundwater maintaining a basic level of water in rivers and lakes to preserve ecosystems  should be secured. Heavy abstraction leading to long term over-exploitation of groundwater should  be avoided. The objective further is to encourage a policy aimed at fresh water saving in order to keep  abstraction of fresh water low and to ensure that appropriate priority is given to encourage water  saving, reuse, and good housekeeping of fresh water resources. Action at Member State level - Member States should draw up maps and inventories of groundwater resources at national, regional,  and local level providing basic information for the integrated management. Some Member States have  already progressed far in mapping, including computerization, while others have only recently  started such work. Maps could be drawn up both as descriptive reference maps such as  hydrogeological maps, and as derivative maps drawn up for special purposes such as aquifer  productivity, vulnerability, identification of interactions with surface water, discharge into  streams or lakes, etc. - An authorization system, where appropriate with general rules, for fresh water abstraction should  be directed at all uses, e.g. in domestic, industrial, agricultural, and leisure activities. The  authorization system for fresh water abstraction should apply to all major abstractions above a  certain threshold taking into account resources available, potential conflicts of interest between  users, the needs of ecosystems, etc. Authorizations should be reviewed periodically and where  necessary adjusted. In regions with large annual precipitation and good availability of fresh water  more flexible general rules could be appropriate, provided safeguards are taken to avoid  irretrievable damage being inflicted on ecosystems supplied by such fresh water. - Where appropriate the authorization system should cover interregional transfer of large volumes  of water as the number of potentially concerned users and resulting conflicts of interest may give  rise to particular problems. Further, an appropriate assessment of the environmental impacts in the  area of abstraction should be undertaken in order to avoid compromising replenishment of  groundwater in the area where the water originates. - Care should be taken to ensure comprehensive planning of use of water from hydrographic basins  and aquifers extending across administrative borders, in other words through management within a  river basin perspective. When considering authorizations for water abstraction special attention  should be paid to the interests of down-stream users and ecosystems. - Possibilities for encouraging saving of water resources and good housekeeping should be  considered in order to keep abstraction of fresh water low, especially in areas with water  shortage. This could include recommendations for new practices for irrigation, renovation of  distribution systems to reduce losses, and differentiation into types of water for different uses,  installation of meters, and use of economic instruments such as appropriate pricing and fiscal  incentives to promote efficient use. Development of new processes based on the principles of clean  technology and best available techniques should be encouraged as should possibilities for reuse of  water, e.g. as requested by Directive 91/271/EEC concerning urban waste water treatment. - Artificial recharge should be subject to an authorization system in order to secure an  appropriate control. Standards for assessment of environmental impact from recharge and for  monitoring and quality control should be developed with a view to using best available techniques  (BAT) and best environmental practices (BEP). Action at Community level - A legal framework with minimum requirements for abstraction of fresh water should be developed as  a response to the increasing pressure on existing fresh water resources. This legal framework  should ensure that freshwater is abstracted from the most appropriate source at the most  appropriate time. The legal framework should take into account groundwater and surface water  availability, seasonal fluctuations and natural replenishment characteristics, as well as any  natural interaction and interdependence between groundwater and surface water. The future framework  Directive on water resources should include a requirement for the control of abstraction of fresh  water from groundwater and surface water, taking into account availability and quality requirements  within respective river basins. For ensuring a high water quality, Community legislation concerning  treatment of urban waste water and control of diffuse and point sources of pollution should also be  taken into account. ACTION LINE 3 - DIFFUSE SOURCES OF POLLUTION Environmental challenges from diffuse sources of pollution Diffuse sources are characterised by having a fairly low intensity per unit area, but coming from  large surfaces. The very nature of diffuse sources of pollution therefore often makes it difficult  to identify the individual polluters, in particular for pollution of groundwater, where the time  lag between application or release of the polluting substances and the possibility for detection of  presence in the groundwater may span up to several decades. Due to this nature of diffuse sources  of pollution, a more general approach to remove or reduce the threats to fresh water should be  chosen and the corrective measures should address broadly the practices behind the application of  the polluting substances. Threats to groundwater and surface water from diffuse sources stem from agricultural and industrial  activities, traffic, and urbanisation either through local impacts or long distance via atmospheric  deposition. As a result of recent more systematic monitoring of groundwater in Member States,  widespread occurrence of nitrates and certain plant protection products has been documented across  Member States indicating serious threat to the quality of groundwater both for drinking water  purposes as well as for the ecological quality of fresh water in general. Application of plant  protection products and biocidal products along railway installations, roads, on camp sites etc.  constitutes other important diffuse sources of concern due to intensive use. Concentration of livestock farming has given rise to problems with leaching of nitrates to fresh  water. Intensive application of manure and chemical fertilisers in agriculture likewise has given  rise to eutrophication of fresh water and threats to groundwater quality. Intensive use of certain  plant protection products in agriculture and forestry also has lead to contamination of groundwater  and surface water in concentrations that give rise to concern across Member States. Substantial  increases in the spreading of sewage sludge on agricultural and other land as a way of disposing of  the increasing amounts of sludge created by sewage treatment plants also will increase the pressure  on the environment from diffuse sources. Air emissions from industry, traffic, heating systems, combustion facilities and other major  installations emitting compounds such as nitrogen oxides, sulphur dioxide and other gases are  carried over long distances and deposited from the atmosphere increasing the risk of groundwater  pollution and causing or adding to eutrophication and acidification of fresh water directly or  indirectly via the soil. Deposition via the atmosphere of ammonia evaporating from manure from  intensive livestock farming also contributes to eutrophication of fresh water. Further, plant  protection products and biocidal products have been shown to be deposited from the atmosphere by  rain water. Objectives The main objective is to diminish and where possible to avoid threats to groundwater from diffuse  sources in order to maintain or improve the present quality of groundwater and to encourage  development towards an environmentally friendly land use. Within the overall objective of  protection of groundwater, relieving the environmental pressure from diffuse sources should have  the highest priority because the largest quantities of groundwater are found and formed in the  countryside with agriculture, forestry and nature in general, where diffuse sources constitute the  major threats. The objective further is to establish a Community framework for the development of codes of good  practice for sustainable use of substances that cause, or inappropriately used may cause, threats  to fresh water quality through further development of an integrated strategy for sustainable use of  plant protection products, including more detailed provisions on the distribution and sales of  plant protection products and restrictions of use and substitution of the most dangerous plant  protection products pursuing the objectives established by the fifth environment action programme,  taking into account differences of practices and conditions in the regions of the Community. In  particular, this objective applies to the use of biocidal and plant protection products and  fertilizers. ACTION LINE 3.1. - DEVELOPMENT OF A POLICY WITH A VIEW TO ENVIRONMENTAL SUSTAINABILITY OF  AGRICULTURES Strategically, alleviation of the environmental pressure from activities in the countryside should  have the highest priority. Threats to groundwater in the countryside stem mainly from agricultural  activities with leaching of nitrates from manure and other fertilisers and leaching of plant  protection products and biocides. These threats to groundwater and surface water quality will only  in the long term be relieved by a change towards sustainable agriculture. Agricultural practices  therefore should be targeted as a strategic element in protection of groundwater and surface water  quality. Agriculture policy being an area of exclusive competence for the Community means that actions  should be directed towards changes at the level of the Community in order to develop the necessary  framework for Member States to take action. The revision of the CAP in 1992 led to the introduction of new instruments for the management of  the agricultural market and of rural development : - Council Regulation (EEC) No 1765/92 () linking compensatory payment with obligations to set-aside  agricultural land, - Council Regulation (EEC) No 2078/92 () encouraging voluntary introduction of production methods  more compatible with the requirements of the environment, - Council Regulation (EEC) No 2080/92 () promoting afforestation on agricultural land, - the revision in 1993 of Council Regulation (EEC) No 2052/88 () for the Structural Funds requiring  appraisal of the environmental situation in the regions concerned, - the CAP also contains non-financial instruments which could help to improve the quality of the  water environment. In particular, Council Regulation (EEC) No 2092/91 () defines organic practices  for the production of crops, - Council Regulations (EEC) No 125/93 () and (EC) No 3611/93 () introducing provisions taking into  consideration protection of the environment into the premium scheme for beef producers. It is still too early for a definitive assessment of these encouraging first steps towards more  environmentally friendly agriculture, but already preliminary results indicate a positive influence  from these measures and further steps towards sustainability undoubtedly would be useful to reduce  negative impacts on fresh water quality. Integrating environmental needs into agricultural practices in order to direct agricultural policy  towards sustainability in future developments of the common agricultural policy would not only  serve fresh water protection but also be beneficial for a broader range of environmental  objectives, as well as having consequences for the achievement of objectives of a broader  social-economic nature. Action at Member State and Community level Integration of further environmental concerns into agriculture in future developments of the common  agriculture policy should consist of measures specifically developed and directed towards  protection of the environment, including fresh water. These measures presently affect only a part  of the agriculture budget. Possibilities should be explored for a substantial expansion of the  agri-environment measures within the framework of the CAP. - All possibilities and strategies to lessen the impact of diffuse sources such as nitrates and  plant protection products should be explored. Introduction of economic instruments amongst other  measures should be included. These instruments could be based on further incentives encouraging  environmentally friendly sustainable farming. Use of the principle of internalising the  environmental costs with the help of taxes and levies directly aiming at the consumption of  chemical fertilisers and plant protection products, excessive application of manure from intensive  livestock farming, etc. could be explored. In addition the viability of such instruments should be  explored, including whether economic instruments should better be implemented at Community level in  order to avoid distortion of competition. - Possibilities for further encouraging environmentally friendly farming are given in a number of  Council Regulations : Regulation (EEC) No 1765/92, though the obligations to set aside arable land are mainly aimed at  curbing over-production with only limited provisions concerning the protection of the environment.  Land set aside in this framework is also not necessarily taken out of cultivation but may be used  for production of non-food crops. Possible environmental impacts from non-food production should be  properly addressed also. More precise environmental conditions based on farming practices  compatible with water protection and the environment including the usefulness of having a Community  framework ensuring proper environmental management of set-aside land should be explored. By  combining the need to protect the environment with the need to curb production in agriculture it  should be possible to achieve so called win-win situations benefiting both the interests of the  farmers and the environment. With a view to fresh water protection it should be analysed whether  short term set aside might give only limited benefits or even lead to increased leaching of  nitrates. Land set aside on a longer term or permanent basis concentrated in vulnerable areas along river  banks and in areas with groundwater designated for present or future use for domestic purposes  should be useful for the protection of water resources. Compensatory payment should be based on  crop yields respecting codes of good agricultural practice. This would include the use of manure,  chemical fertilizers and plant protection products in a way compatible with protection of water and  nature ('cross compliance`). Regulation (EEC) No 2078/92 ('agri-environment`) gives incentives for reduction of the use of  fertilizers and plant protection products, including in organic farming, for the extensification of  crop and livestock production, and for the voluntary long-term set aside of areas of farmland  benefiting also protection of fresh water. Expansion of agri-environmental measures under the  'agri-environment` Regulation should be explored. Further, additional national and local structures  for the effective implementation of this Regulation are essential. Proper monitoring is necessary  also to ensure the positive contribution of this measure to the improvement of water quality. Regulation (EEC) No 2080/92 gives incentives for afforestation on agricultural land. Afforestation  can have important positive or negative effects on groundwater quality depending on the nature and  location of the forest, types of plants, soil characteristics and other geological and climatic  factors. Careful planting with appropriate native species can help to improve the quality and  regulate the supply of groundwater as well as delivering benefits for biodiversity. The application  of fertilizers and pesticides and spreading of sewage sludge in forestry may cause damage to  groundwater resources, and potential impacts on groundwater should be taken into account. Expansion  of measures under this Regulation encouraging long term afforestation should be explored. The framework Regulation (EEC) No 2052/88 () for the Structural Funds was amended in 1993. The  diversification and reorientation of agriculture is a key part of rural development programmes and  actions under the Structural Funds (Objectives 1, 5a and 5b). If these programmes are to succeed in  contributing substantially to the protection of the water environment, environmental authorities  should be associated in designing and implementing projects which address key environmental issues.  Environmental impacts of programmes and projects should be evaluated in advance and monitored when  implemented. This requires a Community framework and effective structures at national and local  level which can ensure the coordination of these measures with actions under other initiatives such  as the agri-environment Regulations (EEC) No 2078/92. The environmental dimension of the Structural  Funds should be strengthened when measures have to be prepared for the period beyond 1999. Regulation (EEC) No 6092/91 introduced criteria for organic farming practices. Organic farming  avoids or reduces considerably the use of chemical fertilizers and encourages the use of organic  fertilisers. With respect to the problem of nitrate leaching to the environment, care also has to  be taken with the use of organic fertilisers in the practices of organic farming. The Regulation  concerns arable production only, while the Commission is finalising the preparation of a proposal  to extend its scope to animal production. Organic farming was not exempted from the general set  aside requirements under Regulation (EEC) No 1765/92 of the 1992 revision of the CAP. Taking into  account the environmentally friendly character of organic farming, and in particular the avoidance  of use of plant protection products, making room for such an exemption should be considered. Action at Community level - The Community should play a central role in stimulating and facilitating the implementation of  codes of good agricultural practices for environmentally compatible use of plant protection  products and chemical and organic fertilisers by securing the sharing of experience and information  between Member States. ACTION LINE 3.2 - ENVIRONMENTAL CHALLENGES FROM NITRATES AND OTHER MINERAL EMISSIONS The nitrate content of groundwater and surface water has been increasing in certain areas of the  Community leading to a threat to the quality of drinking water with limit values being approached  or exceeded in a growing number of cases. Concentrations even lower than the levels posing a risk  to human health may lead to eutrophication detrimental to animal and plant life and nature,  especially in the receiving areas of the Community, eg. the North Sea and the Baltic Sea. Action at Member State level - Groundwater quality should be appropriately monitored and assessed with respect to content of  nutrients in order to allow Member States to follow the development of quality of aquifers and in  particular to detect early signs of deterioration and eutrophication. - Implementation of Directive 91/676/EEC concerning the protection of water against pollution  caused by nitrates from agricultural sources should be the major element of the actions on the  nitrate question. Other contributions responsible for eutrophication such as atmospheric deposition  should be addressed also. These sources are dealt with under action line 4 on point sources. - In order to maintain the quality of unpolluted groundwater, preventing further pollution and  restoring where appropriate polluted groundwater, preventive action should also be taken in order  to keep concentrations as low as possible in areas with fresh water containing less than 50  mg/litre as defined by the criteria for designation of vulnerable zones by the 'nitrate` Directive.  For restoration of polluted groundwater a minimum target should be at least the relevant drinking  water standards. Priorities should be set taking into account realistic time scales and  practicability. - All possibilities, including use of economic instruments in order to reduce use of manure and  chemical fertilisers to the amounts required for crop production and compatible with protection  of-the environment and fresh water quality should be explored. Necessary changes in the pattern of  agricultural land use, including the use of crop rotation schemes to avoid surplus nitrates  reaching ground and surface water and other environmentally vulnerable areas should be made. A  balance between nitrogen inputs and outputs should ensure that losses to the environment are kept  within acceptable limits. Losses should at least be compatible with compliance with drinking water  requirements, and should not cause eutrophication of receiving waters. This might entail use of  input-output accounting systems and other measures for assessing and controlling the balance. At  the same time this would reduce considerably the risk of pollution from phosphates, as phosphates  are often applied as an integral part of fertilisers and contained in manure. - The development of codes of good agricultural practice for environmentally compatible production  should be at the centre of actions taken. Appropriate measures to monitor compliance with the codes  of good agricultural practice should be established. As compliance with the codes in itself may not  be sufficient to achieve the objectives in certain regions, measures of a further-going nature to  ensure environmentally compatible production could be developed. Possibilities for using the  principle of cross-compliance should be explored in this context. In order to avoid distortion of  competition and to create so called win-win situations benefiting both the environment and the  farmers, strategies to compensate farmers should be developed also. Action at Community level - The Commission should undertake to follow up closely on progress in the ongoing implementation of  Directive (EEC) No 91/676 on nitrates in Member States. - The Commission should undertake to consider possibilities to ensure further development of  agriculture policy towards sustainability. With a view to environmentally sound use of fertilisers  an expansion of the budget for targeted environmental measures as well as the introduction of  explicit environmental conditions in the general set aside regulation should be explored. ACTION LINE 3.3 - ENVIRONMENTAL CHALLENGES FROM PLANT PROTECTION PRODUCTS AND BIOCIDAL PRODUCTS Plant protection products and biocidal products are widely used in agriculture and forestry, on  industrial sites, along traffic lines, on public land, and for domestic use. Due to geological and  climatic differences and to differences of traditions of use, etc., the use of these products  varies considerably between regions in the Community. Monitoring of fresh water quality has revealed concentrations of plant protection products  exceeding the limit values laid down for water intended for human consumption in an increasing  number of cases, thus indicating threats to groundwater and surface water quality and potentially  posing a risk for human health depending on the sources of fresh water supply and the type of  active ingredients. In relation to protection of groundwater, plant protection products and biocidal products that are  highly mobilisable, with a high water solubility, or persistency are of main concern due to their  potential for leaching to groundwater. Focus may vary from region to region as actual leaching will  depend on many parameters related to mode of application, climatic and geological conditions, etc. Action at Member State level - Groundwater quality should be appropriately monitored and assessed at least for products commonly  used and/or known or expected to leach to groundwater in order to follow closely any increase in  concentration of plant protection products and biocidal products. The costs of an overall  monitoring could be excessive. Monitoring therefore could be targeted to areas of particular  concern either because of specific activities of, for example, agricultural or industrial nature  such as high application rate of plant protection products, use of specific products, or due to  high precipitation, sandy soil, or groundwater reservoirs of a particular importance. Registration  of uses could be considered as a means of focusing monitoring activity. - A system with indicators for monitoring the environmental impact of plant protection products  should be developed. At present no single parameter gives a full picture of the environmental  impacts of plant protection products. Until such indicators have been developed, monitoring could  be based on indicators such as frequency of treatment and amount of product sold, hectare-doses,  human and/or ecological toxicity, mobility, solubility and bioaccumulative characteristics.  Particular attention should be paid to those new types of plant protection products where  environmental or toxicological impacts of the product may occur even with concentrations below the  present limit values for water intended for human consumption. - Codes of good agricultural and forestry practice for use of plant protection products and for use  of biocidal products should be drawn up and implemented. They should address protection of all  fresh water and as appropriate take into account local and sectoral requirements. - Directive 91/414/EEC () of 15 July 1991 concerning the placing of plant protection products on  the market introduced a Community definition of integrated control, which could form the basis for  further development of codes of good practice and which could be used as an important element in  the establishment of reduction programmes. - Supplementing Directive 91/414/EEC, some Member States have established programmes for reduction  of use of plant protection products. Drawing on experience gained, all possibilities should be  explored by Member States in order to secure the overall objectives of prevention of pollution of  groundwater. Possible programmes could include inter alia integrated control aiming at strict  demand oriented application, vocational training, certificates for professional users,  record-keeping of applications, a network of authorized instructors, and voluntary or obligatory  testing and inspection of equipment combined with full or partial reimbursement of or subsidies for  costs of testing. Progress could be followed on an annual basis through the results of monitoring  of groundwater quality and indicators for changes in product use. - Until an active substance has been introduced into the Community system of assessment and  reassessment of active substances of Directive 91/414/EEC, Member States should explore  possibilities for such assessment and reassessment of active substances and products of potential  risk to groundwater. Authorization of products with active substances found in groundwater with  values exceeding limit values for drinking water in spite of having been used properly should be  reviewed. Member States should consider applying the uniform principles also for such products. - Use of economic instruments as incentives for good housekeeping, rational use or even  renunciation of use could be explored. Such instruments already exist or are being considered for  introduction in some Member States, inter alia, Sweden, The Netherlands Denmark and Austria. Action at Community level - Directive 91/414/EEC should provide the legal framework for authorizations taking into account  inter alia water protection. Annex VI to this Directive, introducing uniform principles for the  evaluation of plant protection products, will be established through the adoption of a specific  Council Directive. - Environmental standards and regulations for plant protection products and biocidal products  should be developed further. Regulations on plant protection products should be designed in such a  way that for normal and proper use the products or residues thereof should not occur in groundwater  in concentrations exceeding requirements for water intended for human consumption and/or having  harmful effects on ecosystems receiving such groundwater. - A long term scheme should be implemented for assessment and reassessment of active substances for  use in plant protection products, with Directive 91/414/EEC providing the legislative framework for  a Community system for assessment of active substances and plant protection products and for  reassessment of such active substances and products on a 10-year basis. Work is under way for the  initial assessment of active substances for inclusion in the Community system in Annex I to  Directive 91/414/EEC. For the purpose of protection of groundwater, plant protection products with  high water solubility, mobility, persistency, and bioaccumulative characteristics should be given a  particular priority. - Further development of an integrated strategy for sustainable use of plant protection products,  including more detailed provisions on the distribution and sales of plant protection products and  restrictions of use and substitution of the most dangerous plant products are foreseen, pursuing  the objectives established by the fifth environment action programme. Similar objectives should be  pursued for use of biocidal products. ACTION LINE 3.4 - ENVIRONMENTAL CHALLENGES FROM USE OF SEWAGE SLUDGE Following the establishing of treatment plants for urban waste, water sewage sludge is produced in  increasing amounts. In order to bring the contents of the sludge to good use or to dispose of it, a  practice of applying sewage sludge on agricultural land has developed in some Member States. In  this way the nitrate and phosphate content may be recycled. Control of pollution from urban waste  water, septic tanks, leaking sewers, etc. is dealt with in action line  4 on point sources. Sewage sludge may contain high concentrations of dangerous substances and heavy metals, and the  concentration of nitrate and phosphate varies considerably for different types of sludge, thereby  making the sludge less reliable than chemical or organic fertilisers. Inappropriate application may  create problems with pollution of groundwater and surface water and of soil similar to the problems  encountered with use of other fertilisers. Problems of hygiene may arise thereby potentially  threatening groundwater and surface water as well as the quality of the crops themselves. Smell  also could pose problems, for example, near built-up areas and in public forests. Use in agriculture is regulated by Directive 86/278/EEC of 12 June 1986 on the protection of the  environment, and in particular of the soil, when sewage sludge is used in agriculture (). The  Directive lays down minimum limit values for content of heavy metals and periods of application for  the purpose of hygienic safeguards. Some Member States have laid down more strict limit values than  the Directive and limit values have been fixed for additional dangerous compounds or heavy metals.  Some Member States also require that spreading of sludge on land must serve a purpose such as  fertilization or soil improvement and not simply be used as a way of disposing of waste. Use outside agriculture is not at present regulated at Community level. Objective The objective is to avoid negative effects on groundwater from the use of sewage sludge in order to  allow continued or increased recycling of organic matter in sludge on agricultural and other  appropriate land. Action at Member State level - Possibilities for further environmentally sound use of sludge on land should be examined. - A good and constant quality of sludge not exceeding the limit values for heavy metals and other  contaminants should be ensured, thus allowing for the use of sewage sludge on agricultural land for  improving the texture of the soil as well as as a fertilizer. This should make recycling of  nutrients possible in an environmentally sound way. Nutrients in the sludge should be accounted for  in the overall nutrient balance. - Limit values and standards for content of polluting substances and nutrients in sewage sludge  should be reviewed as appropriate with a view to development of standards for other relevant  compounds where such are not presently established. - General rules should be established for the spreading of sludge, including appropriate  restrictions on application within protection zones with groundwater resources intended for  drinking water purposes. Action at Community level - Community legislation should be reviewed with a view to establishing and/or implementing measures  to minimize discharge of dangerous substances and heavy metals into sewage systems from households  and industrial facilities. - Limit values of Directive 86/278/EEC on use of sewage sludge should be reviewed with a view to  scientific updating. - Standards for characterisation methods for sewage sludge should be developed. The Commission  should follow the studies initiated by the European Standardization Organization (CEN) scheduled to  be completed by 1998. ACTION LINE 4 - CONTROL OF POINT SOURCE POLLUTION FROM ACTIVITIES AND FACILITIES WHICH MAY AFFECT  GROUNDWATER QUALITY A point source is a source of pollution with a rather limited and well-defined spatial extension.  It is often of a concentrated nature with a high intensity of pollution per unit area. Point  sources are by their nature in principle traceable to specific activities and installations  handling the polluting substances, though in practice this often proves difficult when possible  point sources are many or interact. Point source pollution in principle is suited for measures at  the source to avert or limit spreading of the polluting substances or containment of damage to  groundwater. Activities which may produce or induce pollution by discharges and emissions are extremely diverse  and numerous. Of particular concern are: installations handling substances which are potential  pollutants: distribution and storage systems for oil and petrol and buried tanks for heating oil;  storage installations for industrial hazardous products, agrochemicals and manure from intensive  livestock units; activities discharging effluent into the environment of a liquid or solid nature  (e.g. dairy industry, slaughter houses and paper mills); urban facilities discharging into the  environment matter of a liquid or solid nature such as septic tanks, leaking sewage system, etc.;  landfills for urban and hazardous waste; graveyards and animal burial sites; gravel pits, mining  activities in use or abandoned, including tips, tailings and dewatering; abandoned industrial sites  and other contaminated land. Activities and installations in function or abandoned are, especially  in urban areas and industrial centres, often located on top of aquifers where a considerable  deterioration of groundwater quality may already have happened. Emissions to the air of nitrogen  oxides, sulphur dioxide and other substances give rise to long-range transboundary air pollution  when deposition takes place via precipitation causing acidification and eutrophication of fresh  water. Objectives The objective is to ensure a high level of protection from activities and installations producing  liquid and solid effluent and/or representing a potential risk of accidental pollution of  groundwater resources. A general and high level of protection of all groundwater should be the  rule, with specific rules and particular attention paid to additional needs for protection when  required by extraordinarily high risks, sensitivity and/or vulnerability, or by the need for  protection of important groundwater. In order to avoid or reduce the risk of pollution of fresh  water via precipitation the objective is to ensure a reduction of emissions to the air of  substances causing eutrophication and/or acidification. For existing contaminated sites and areas with polluted groundwater or risks of pollution, such as  old abandoned landfills and mines, or industrial grounds, the objective is to ensure  decommissioning, containment or reclamation where appropriate of such contaminated sites and  groundwater. Action at Member State level - The proposed Council Directive on integrated pollution prevention and control () should  eventually provide the overall principles at Community level for the authorization of major  installations and activities (IPPC s), including considerations for the protection of groundwater  against point source pollution. Major efforts have to be made to implement and further develop the  principles of the integrated pollution prevention and control approach. - Protection of groundwater against pollution from smaller ('non-IPPC s`) installations and  activities that may act as point sources of pollution should equally be ensured. Authorization  should be operating in a transparent, rational and predictable way. Overlapping and duplication  should be avoided.- An authorization system should cover any point source from installations and activities that may  negatively affect groundwater quality by direct or indirect discharge. For reasons of  proportionality it should be noted that the existing Groundwater Directive excludes from this  requirement 'discharges which are found by the competent authority of the Member State concerned to  contain substances ... in a quantity and concentration so small as to obviate any present or future  danger of deterioration in the quality of the receiving groundwater`. The authorization system also  should be directed towards potentially polluting point source activities such as industrial and  urban installations, landfills, distribution and storage systems for oil, petrol and other  substances, and mining activities. Permits for discharges should take into account possible effects  on aquifers and permits for installations should request the best design for groundwater  protection. Authorizations granted under this system should take into account also the need for  decommissioning such installations and activities in such a manner that groundwater is protected. - Leaching, spills, polluted run-off water, etc. should preferably be taken care of through careful  designing and planning of facilities. Safeguarding of the environment could also be secured by  establishing rules for certification of types of installations, oil tanks, etc. In an integrated  management system such safeguarding should be an integral part of the general planning and  localisation system. - Possibilities for encouraging development and use of environmentally friendly production  processes and procedures such as promotion of best available techniques, clean technology and water  saving devices, etc. should be explored. - An inventory of potential point sources as complete as possible should be drawn up and updated on  a step-by-step basis and according to priorities. The inventory should include urban and industrial  facilities and installations, industrial and other contaminated land, landfills, and gravel pits,  mines and quarries, etc. Small facilities such as septic tanks may be exempted if their  environmental impact is negligible or unless they are located within sensitive zones. - Based on the inventory, priorities should be set and decommissioning plans should be implemented  for abandoned installations and sites, e.g. contaminated industrial land, mines, underground  storage depots, landfills, old wells, etc., according to level of risk, practicability and  realistic time scales. Where appropriate the necessary containment and rectification measures  should be taken. - Guidelines and procedures for decommissioning of installations should be provided for all new  installations and sites. - Prohibition of direct discharge into aquifers of hazardous substances, including urban and  industrial waste water, polluted run-off water, etc. must be made. - Treatment of all urban and domestic waste water should be compulsory, as prescribed by Directive  91/271/EEC on urban waste water treatment, thus speeding up the implementation of the Directive. A  priority plan within the schedule given by the Directive could be drawn up and monitoring of  benefits of the treatment should take place. - For use of septic tanks, a sufficient capacity and a system for regular emptying should be  ensured. Waste should be brought to a treatment plant where possible, or disposed of in an  environmentally safe way. Establishment of standards for best available techniques and equipment  could be explored. - Remedial action should be taken for leaking sewers in order to avoid pollution of groundwater. - Possibilities for using economic instruments such as, as appropriate, charges and fiscal measures  as an incentive to internalize environmental costs to reduce the amounts of pollution from  discharge of effluent as well as possibilities for the use of voluntary agreements should be  reviewed. Action at Community level - Drawing up in collaboration with and placing at the disposal of Member States of comparable data  on the feasibility and effectiveness of prohibiting discharge of dangerous substances into  groundwater. - Work on general provisions and standards for safety equipment and procedures for installations  handling and storing substances harmful to water in particular with a view to use of best available  techniques should be developed. As different levels in standards, provisions and especially the use  of economic instruments to internalise environmental costs may lead to distortion of competition  between Member States, introduction of such elements should be considered at Community level  consistent with the relevant provisions of the other Community policies concerned. - Eutrophication and acidification from atmospheric deposition should be regulated through  international agreement. Development, review and amendment as appropriate of international  conventions and protocols on long-range transboundary air pollutants should be pursued by the  Community. Appropriate implementation of such agreements should be ensured in Community legislation  and policies. Air quality objectives and emission standards in Community and Member State  legislation should take into consideration the effects on fresh water quality of emissions to air  of substances causing eutrophication and/or acidification. This applies not least to exhaust from  traffic. A significant body of legislation already exists for control of emissions from mobile sources and  in particular of car emissions. The Commission is preparing proposals for legislation which will  further tighten such emission standards. Proposals concerning passenger cars, light duty vehicles  and heavy duty vehicles are expected to be adopted by the Commission in the near future. The Commission further will develop Daughter Directives on specific air pollutants as a follow up  to the proposal for an Air Quality Framework Directive () currently under negotiation in Council  and Parliament. A proposal on control of nitrogen dioxide will be presented at the end of 1996. As a follow up to the Council's request of December 1995 () the Commission is presently developing  a Community strategy for control of acidification. The Commission intends to present this strategy  to Council in the beginning of 1997. PART 2 IMPLEMENTATION OF THE ACTION PROGRAMME The role of the Commission - In order to ensure common water management principles the Commission intends to present a  proposal for a framework Directive on water resources in which basic provisions for management of  groundwater will be included. The framework Directive will include provisions on protection of  groundwater and thus take over the provisions of the present groundwater Directive as explained in  the communication on European water policy. The framework Directive will also introduce a  requirement for control of abstraction of fresh water. The Commission intends to present the  proposal for the framework Directive on water resources at the end of 1996. - The Commission should review and where appropriate consider adaptation of existing Community  legislation in line with the objectives of this action programme. - The Commission should ensure a further integration of water policy into other Community policies  where this is necessary for fresh water protection and management. Areas such as agriculture and  regional development have a profound impact as well as dependence on availability and quality of  groundwater resources and further integration into the common agriculture policy and the regional  policy are particularly important for achieving the objective of sustainable fresh water protection  and management. Following from the general outline set out by the fifth environment programme,  'Towards Sustainability`, and further specified in the recent Commission proposal for a review of  the fifth action programme, the Commission will pursue the further integration of water policy into  other Community policies where this is necessary for fresh water protection and management. A  number of options for such integration in particular into agriculture policy to be considered by  the Commission are presented in this action programme. The importance of research and development  to water Management and protection has been recognised by the Community research programme  'Environment and Climate 1994 to 1998`, which devotes one of its research areas to improvement and  rationalization of the future management of water resources. Water has also been identified as a  priority area for additional concentration of the Community research effort under the Commission's  proposal for supplementary funding of the fourth RTD framework programme (). Additionally, a  special task force on environment and water has been created in 1996. - Progress with implementation of Community water legislation should be followed closely notably  with the Directive on nitrates from diffuse sources and the urban waste water treatment Directive,  in order to secure their full implementation and functioning. - The Commission in close cooperation with Member States should undertake the development and use  of economic instruments, voluntary agreements and other non-legal instruments as well as research  and development of less water-consuming technologies and practices and various research inter alia  for mapping, monitoring, definitions of groundwater vulnerability. - The Commission should serve as a focal point for the development of guidelines and  recommendations, e.g. for drawing up codes of good practices and assisting in exchange of  information and experience as appropriate. National Action Programmes - Member States should establish their own national action programmes taking full account of  national conditions. - National action programmes should be based on the following principles: (1) Integrated planning  and management should be developed, (2) Rules for quantitative maintenance of groundwater  resources, including where appropriate a regulatory framework for abstraction of fresh water,  should be established, (3) Measures to protect groundwater against pollution from diffuse sources,  including codes of good practices and indications of longer term measures to secure further  integration of water protection and management notably into agricultural practices should be taken,  (4) Instruments for control of point source emissions and discharges, including a regulatory  framework should be further developed. Also incentives for development of environmentally friendly  production processes and procedures are important. - National action programmes should be developed with a view to a long-term compatibility with a  river basin management approach. - National action programmes should indicate how and when measures will be undertaken and with a  view to questions of a transboundary nature programmes should indicate which measures will be  undertaken at a national level and which measures will require addressing within the wider  perspective of transboundary river basin management. National action programmes should contain the following elements: - Mapping and characterization of groundwater systems. - Monitoring to provide information on development of quantitative and qualitative aspects of  groundwater resources. - Reporting schemes to follow progress in mapping and monitoring. - Review of the water sector and adjustment of administrative structures and legislation, including  instruments to assess future trends in demand for fresh water. - Integration of groundwater protection and management into spatial planning, including  establishment of zoning of vulnerable and other important areas. - Drawing up inventories of point sources and polluted groundwater and soil, and setting priorities  for decommissioning, containment, and rectification of installations, polluted sites, and  groundwater. - A comprehensive regulatory system and rules for fresh water abstraction and for activities and  facilities that may lead to pollution of groundwater. - Encouragement of development and use of environmentally friendly production processes and  procedures such as best available techniques, clean technology and water saving devices etc. - Review and implementation of strategies and measures to control pollution from diffuse sources,  including the establishment of codes of good practice. - Introduction of measures to promote water saving, reuse, and sustainable use of fresh water  resources, and where appropriate reduction of consumption of water. - Possibilities for use of economic instruments, including taxes and levies. - Plans for information and involvement of the public, and in particular of specific user groups  when drawing up and implementing national action programmes. - Timetable for the implementation of the national action programme. PART 3 REVIEW OF PROGRESS WITH IMPLEMENTATION OF THE ACTION PROGRAMME Review of progress with implementation - In practical terms, implementation should be seen as an on-going process with initiatives being  taken on a short, medium, and long-term basis depending on their nature, role and importance. A  schedule for implementation of national action programmes should be laid down as soon as possible.  The types of action needed will vary from Member State to Member State depending on the  environmental state of groundwaters, on regional and local conditions, on existing legal and  administrative structures, and on measures already taken or decided. - Member States as soon as possible should draw up national action programmes and decide upon  target years for the ensuing actions to be laid down as appropriate according to the national,  regional and local situation but with the year 2000 as an overall target year for a functioning  national action programme. Appraisal of action taken, review of time schedules, and appropriate  adjustments should be foreseen and appropriate check points laid down in order to follow progress  with the programmes. - Some measures will reach beyond or be taken after the year 2000. Such follow-up measures for  securing the long term strategy should be clearly indicated and accompanied by an appropriate time  schedule. Short-term actions such as completion of mapping, of monitoring, review and improvement  of administrative and legislative structures and performance of the water sector, designation of  vulnerable and other important protection zones, establishment of authorization systems, and  promotion of water saving should be launched as first steps. - Actions on the longer term require more preparation or depend on assessment of the groundwater  situation based on results of mapping and monitoring, etc. This applies, for example, to  integration of general fresh water protection into spatial planning and land use, the setting up of  cross-sectoral administrative structures, to drawing up inventories of point sources, and to  setting priorities for decommissioning and restoration, etc. Execution of decommissioning and  restoration work would be tasks reaching into the 21st century in a prioritized and staged  approach. - Review of progress and achievements of Member States should take place at regular intervals. The  year 2000 could be an appropriate target year for the first overall appraisal of progress. Member  States should report to the Commission on progress with the national action programmes in order to  facilitate sharing of experience. - Review of the overall progress in the Community should take place at appropriate intervals. Based  on the assessment of progress by Member States and on reports on the environmental state of  groundwater from the European Environment Agency and Eurostat, the first review of progress by the  Commission should follow closely after the appraisal in the Year 2000 by Member States. () OJ No L 375, 31. 12. 1991, p. 1.  () OJ No L 135, 30. 5. 1991, p. 40.  () OJ No L 103, 25. 4. 1979, p. 1.  () OJ No L 206, 22. 7. 1992, p. 7.  () OJ No L 181, 1. 7. 1992, p. 12.  () OJ No L 215, 30. 7. 1992, p. 85.  () OJ No L 215, 30. 7. 1992, p. 96.  () OJ No L 193, 31. 7. 1993, p. 9.  () OJ No L 198, 22. 7. 1991, p. 1.  () OJ No L 18, 27. 1. 1993, p. 1.  () OJ No L 328, 29. 12. 1993, p. 7.  () OJ No L 185, 15. 7. 1988, p. 9.  () OJ No L 230, 19. 8. 1991, p. 1.  () OJ No L 181, 4. 7. 1986, p. 6.  () OJ No C 311, 17. 11. 1993, p. 6.