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The EAP 6th programme
The prospect of progress in sustainable
development under the EU 6thCommunity Programme
Malcolm Sutherland (0204783)
Original report submitted in March 2003 in fulfilment of the requirements for the module in
Environmental Policy and Regulation (LA532), the University of Abertay Dundee
Revised May 2013
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CONTENTS
Introduction to the 6th Programme
What is Sustainable Development?
Measuring Sustainability
The 5th Environmental Action Programme
How is the 6th EAP taking Sustainable Development further?
Some conclusions
ABBREVIATIONS
EAP Environmental Action Programme
EMAS Eco-Management (and) Audit System
ICM Integrated Coastal ManagementNOx Nitrous oxides
SD Sustainable Development
SMEs Small/Medium Enterprises
SOx Sulphurous oxides
UWTD Urban Wastewater Treatment Directive
VOCs Volatile Organic Compounds
Authors revised note: the original electronic files were lost in 2006. A printout of the
report was retrieved, but this did not contain the references. This report should not be
cited without reference to other literature which has been referenced and reviewed.
Consequently, this file is free of charge, and there are no restrictions on its distribution.
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INTRODUCTION TO THE 6th PROGRAMME
The EU Community Programmes have all coincided with global environmental summits and
treaties; these initially addressed the direct mitigation and control of pollution, although in
recent years, attention has been drawn to the long-term approach of sustainable
development. The fifth and sixth programmes have embraced this principle, in connection
with Agenda 21 and the 2002 World Summit on Sustainable Development, respectively.
Environmental issues include climate change, biodiversity, environmental health, waste
minimisation, and the sustainable use of natural resources- The focus is not merely on
tackling pollution, but on progressing towards a symbiotic interaction between people and
the environment- without compromising peoples' needs.
The means of achieving this progress are proposed through 5 strategies:
(1) adoption of all existing environmental legislation;
(2) consideration for the environment in all policy areas;
(3) communicating with businesses and consumers;
(4) improve access to information; and,
(5) develop environmental awareness in land-use development. Overall, this programme is
designed to be more practical and tactful than its predecessor.
WHAT IS SUSTAINABLE DEVELOPMENT?
In its simplest context, sustainable development is defined as the provision of peoples'
needs today, without compromising those of future generations. This essentially requires a
balance between environmental improvement and economic development.
Translating this broad vision into environmental policies and actions has baffled scientists,
politicians, and stakeholders for over a decade. It is not to be confused with sustainable
growth, where profits, the standard of life and that of the environment must continually
improve (Bell & Morse, p11). Such a vision is unrealistic, as reckless economic growth often
occurs at the expense of the environment, and the needs of people living elsewhere.
Instead, article 2 of the Maastricht Treaty calls for "non-inflationary economic growth
respecting the environment". The Progress Report of the 5th EAP states that sustainabledevelopment "will only occur when..." it "...is seen as the only model for economic
development..." and "...is fully accepted by every citizen".
Since the 1992 Rio Earth Summit, it is recognised that governments alone cannot achieve
sustainability through legislation alone. The attitudes of business and individuals must
change drastically. In addition, the economic differences between developed and
developing countries have to be properly addressed. More importantly, the public have to
contribute towards such a scheme. Sparse evidence of such changes has occurred in the UK
alone so far.
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A European View of Sustainable Development
To date, some EU member countries have undertaken the initiative to promote
sustainability, through active participation of national and local authorities, companies,
NGOs and citizens, in sharing information and making positive efforts (e.g. recycling
schemes, environmental technology). This reflects the Model of Sustainability, where
everyone in each sector is included:
Figure 1: the Sustainability model, where legislation, participation and the use of indicators are used
The 5th
EAP programme (Towards Sustainability) prescribes a list of objectives against five
key indicators (Table 1). The United Nations Working List of Sustainable Development
Indicators list covers a wider spectrum than that of the 5th
EAP (Table 2).
THE 5 ENVIRONMENTAL ACTION PROGRAMME
Overall, the first 5 EAP programmes provided Europe with a detailed list of environmental
limits, policies and targets. Through these, significant improvements to local air, water, and
soil quality have been achieved, and many issues relating to direct sources and effects of
pollution have been addressed. Nevertheless, after nearly 30 years of environmental
legislation in the EU, some member states still fail to implement the environmental
directives, which they have signed up to under the European Commission. (Jackson, MEP,
2000.)
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Table 1: the 5th
EAP programme key indicators and objectives
Table 2: UN sustainable development indicators
In the European Union alone, progress towards SD has been limited. The main threats to SD
include:
(1) the accelerated production of greenhouse gases;
(2) serious threats to public health due to hazardous chemicals (especially in food), and
resistant diseases;
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(3) a sixth of the population living in poverty (which persists through family generations and
contributes to poor health and consumer behaviour);
(4) the consistent aging of the population (putting the sustainability of pension schemes at
risk);
(5) dramatic losses in biodiversity in recent years, especially with fish stocks; and,
(6) transport congestion, blighting most urban regions.
Attempts have been made by governments and local communities to address these issues.
However, some environmental legislation has been over-optimistic, or has demanded
improvements, which entail excessively high costs for some member states, and are
inevitably ignored. Also, new environmental issues such as biotechnology, waste disposal
and educating the public, take priority in the 6th
EAP. The previous programme included
three main objectives:
(1) Strategies for 7 environmental priority issues:
a. Climate change
b. Acidification and air quality
c. Biodiversity
d. Water Pollution
e. Urbanisation
f. Coastal zone management
g. Waste management
(2) Target employment sectors, in order to integrate environmental policy into their
activities.
(3) Broaden the range of methods used to implement, environmental policy.
Figure 2 over-page summarises the objectives, directives and targets of the 5th
EAP (Towards
Sustainability. No.138/25).
Although some measurable environmental targets were proposed, most were non-
quantifiable, and as a result, the practical progress towards SD has been rather limited. The
main weaknesses have been weak enforcement of environmental legislation into economic
policies, and a general apathy in allowing stakeholders to participate and be educated in
progressing towards SD.
Speaking of apathy, strategies 1 (a to c) have not been examined further.
1(d) Water Pollution
The last decade witnessed considerable improvement in water quality, although this was
mainly as a result of the UWTD. Several formerly polluted rivers have achieved satisfactory
status. However, there has been limited success in implementing the Nitrates Directive, and
levels of pesticides in groundwater supplies still exceed mandatory limits in many areas.
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Figure 2: the directive, objectives and targets of the 5th
EAP
Nevertheless, the IPPC Directive was passed in 1996; this seeks to control or eliminate
polluting discharges from all industrial sites. The 6'11 EAP takes the mitigation of water
pollution further, as it requires the development of a risk management system for assessing
the potential toxicity of all chemicals (Article 6, pr2), and ratification of the Rotterdam
Convention on pesticides (Article 6, pr 3). It also requires phasing out the discharge of all
hazardous substance discharges to water, and a revision of the Bathing Water Directive
(Article 6, pr 4). It also recommends an overall reduction in the use of pesticides. (Article 2,
pr 4.)
1(e) Urbanisation
As over 70% of the HU population lives in urban areas, over 30% is exposed to high levels of
noise, air pollution, and contributes to the growing urban municipal waste. Energy
consumption and increasing land use are two other problems- This issue was covered by the
5th EAP, although no monitoring mechanisms or targets were stated. Some of the articles
under ihe 6th
EAP address these issues separately, although there are none, which address
urbanisation as a whole.
1(f) Coastal Zone Management
Following the 5 EAP, the EU undertook an integrated coastal zone management
demonstration programme, in order to educate member states, on mitigating the many
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pressures facing coastal environments, including urbanisation, industry, tourism and
transport. No actual coastal zone policy has been implemented as yet.
The 6th
EAP requires each state to promote forest management schemes, and the
incorporation of environmental policy into marine environment and fisheries protection
(Article 4, pr 5-7.) It also encourages both land, and coastal zone management schemes,
through funding and supporting ICM programmes.
1(g) Waste Management
The Landfill Directive hiis been fully implemented in the UK; nevertheless, in both the UK
and the rest of ihe EU, waste production continues to risc, and consumption patterns only
encourage this. The Packaging Directive has resulted in some progress in recycling; there are
also some initiatives in recycling, incinerating or re-using waste materials. Overall, little
progress in reducing total waste being sent to landfill has been achieved.
The 6th
EAP therefore requires a thematic strategy on waste recycling, including collection
schemes, and isolating priority waste streams. (Article 7, pr 6.) It encourages waste
prevention and recycling initiatives, and a drive towards more sustainable consumer
behaviour. (Article 2, pr 6.)
(2) Targeting Employment Sectors
The 5th programme enforced some legislation upon industries, such as the Air Quality, the
Habitats, and ihe IPPC directives. These do not simply enforce strict limits on emissions or
activities, but also allow for consultation with stakeholders, and give adequate time toreduce pollution, without damaging industry.
This is one of the most successful aspects of the 5th EAP, although it provides the
opportunity to curb legislation. As a result, the adoption of Community law has been found
wanting in many member states. The full compliance by member states must be reached,
before the EU can progress further towards SD.
In order 10 help companies afford such improvements, the 6th EAP requires an
environmental compliance assistance programme for SMEs to he established. (Article 3, pr
4.) Enforce controls on the monitoring, labelling and tracing of genetically modified crops(Article 5, pr 8.)
It also promotes sustainable business practises, and the removal of subsidies encouraging
the over-use of finite resources. (Article 7, pr 1.) It considers using legislation, which
demands that companies present an environmental review of their activities, and that they
make such information public. (Article 3, pr 6.) Wider uptake of the EMAS scheme (Article 3,
pr 3.), and the provision of reward schemes for innovative companies are also encouraged.
(Article 3, pr 4.)
The 6
th
EAP also prescribes other methods of tackling apathy in implementingenvironmental policy, such as (i) support towards BATNEEC through the IMPEL network, (ii)
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improved standards of litigation and inspections in member states (Article 3, pr 1), and (iii)
continued application of the Polluter-Pays principle (Article 3,pr3.).
SOME CONCLUSIONS
Social Sustainability - has this been ignored?
The Sustainable Europe Research Institute state, that the integration of environmental
politics into the latest EL) forums and programmes on SD (e.g. the Gothenburg, Cardiff and
Lisbon strategies), has driven attention away from the social and employment issues.
None of the articles under the 6 EAP describe provisions for sustaining employment, except
the financial incentives for SMEs, and the encouragement of emissions trading. However, it
does promote the implementation and revision of environmental policies, through
consultation with interested/affected stakeholders. Article 8 of the Aarhus Convention
(agreed upon by member slates) (6'1' EAP document, p20) encourages public participation
in the preparation of new regulations wherever appropriate.
A more active programme
It is encouraging though that the 6 EAP does enforce some laws, and requires all member
states to adopt existing legislation. This is in response to the varying approaches by present
member slates to implement policies from the previous EAPs. It takes the involvement of
the public, and the provision of information more seriously, which fulfils the need to
educate and involve everyone in meeting both their own needs, and those of theenvironment at large. It does not intend to be over-optimistic either, and it is not designed
to pressurise companies to comply with strict laws beyond their capabilities.
In conclusion, it appears that the 6th
Environmental Action Programme will contribute to
further progress towards sustainability, with a stronger and more strategic approach on
environmental improvement, in comparison to the 5th EAP.