COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 11.1.2006
COM(2005) 718 final

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL
AND THE EUROPEAN PARLIAMENT
on Thematic Strategy on the Urban Environment


{SEC(2006) 16 }
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COMMUNICATION FROM THE COMMISSION TO THE COUNCIL
AND THE EUROPEAN PARLIAMENT
on Thematic Strategy on the Urban Environment
1. INTRODUCTION
Urban areas play an important role in delivering the objectives of the EU Sustainable
Development Strategy.1 In urban areas the environmental, economic and social
dimensions meet most strongly.2 Cities are where many environmental problems are
concentrated, but they are also the economic drivers, the places where business is
done and investments are made. Four out of five European citizens live in urban
areas, and their quality of life is directly influenced by the state of the urban
environment. A high quality urban environment also contributes to the priority of the
renewed Lisbon Strategy to ‘make Europe a more attractive place to work and
invest’. The attractiveness of European cities will enhance their potential for growth
and job creation, and cities are therefore of key importance to the implementation of
the Lisbon Agenda.3
However, there are increasing concerns about the state of Europe’s urban
environment. The environmental challenges facing cities have significant
consequences for human health, the quality of life of urban citizens and the economic
performance of the cities themselves. The 6th Environment Action Programme
(6th EAP) called for the development of a Thematic Strategy on the Urban
Environment with the objective of ‘contributing to a better quality of life through an
integrated approach concentrating on urban areas’ and to contribute ‘to a high level
of quality of life and social well-being for citizens by providing an environment
where the level of pollution does not give rise to harmful effects on human health and
the environment and by encouraging sustainable urban development’.
In line with the 6th EAP, the Commission set out its initial analysis of the challenges
facing urban areas in an interim Communication,4 and suggested actions in four
priority themes: urban management, sustainable transport, construction and urban
design, such as mainstreaming of good practice and possible EU obligations to adopt
plans at the local level. Extensive consultations of stakeholders and thorough
analysis of possible ways forward have taken place, the results of which are the basis
for the present strategy.

1 COM(2001)
264.
2
This is reflected in the Bristol Accord: http://www.odpm.gov.uk/index.asp?docid=1162287.
3 COM(2005)
330.
4
“Towards a Thematic Strategy on the Urban Environment” COM(2004) 60.
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2. ENVIRONMENTAL CHALLENGES FACING URBAN AREAS
Most cities are confronted with a common core set of environmental problems such
as poor air quality, high levels of traffic and congestion, high levels of ambient noise,
poor-quality built environment, derelict land, greenhouse gas emissions, urban
sprawl, generation of waste and waste-water.
The causes of the problems include changes in lifestyle (growing dependence on the
private car, increase in one-person households, increasing resource use per capita)
and demographic changes, which have to be taken into account in developing
solutions. These solutions need to be forward-looking, incorporating risk prevention
aspects, such as anticipating the impacts of climate change (e.g. increased flooding)
or progressively reducing dependency on fossil fuels.
The environmental problems in cities are particularly complex as their causes are
inter-related. Local initiatives to resolve one problem can lead to new problems
elsewhere and can conflict with policies at national or regional level. For example,
policies to improve air quality through the purchase of clean buses can be
undermined by private transport growth brought about by land-use decisions (e.g. the
construction of city-centre car parks). Problems related to a poor quality built
environment are often linked to underlying socio-economic problems.
It is widely recognised that the most successful local authorities use integrated
approaches to manage the urban environment by adopting long-term and strategic
action plans, in which links between different policies and obligations, including at
different administrative levels, are analysed in detail (see annex). Obligations
imposed at local, regional, national or European level (e.g. land-use, noise, air
quality) can be more effectively implemented at the local level when integrated into a
local strategic management framework.
3. THE ADDED VALUE OF ACTION AT EU LEVEL
Local authorities have a decisive role in improving the urban environment. The
diversity in terms of history, geography, climate, administrative and legal conditions
calls for locally developed, tailor-made solutions for the urban environment.
Application of the subsidiarity principle, where action should be taken at the most
effective level, also implies acting at the local level.
However, the urban environment needs action at all levels: national and regional
authorities, as well as the EU, all have a role to play.
Many solutions already exist in certain cities but are not sufficiently disseminated or
implemented. The EU can best support Member States and local authorities by
promoting Europe’s best practices, facilitating their widespread use throughout
Europe and encouraging effective networking and exchange of experiences between
cities. It can offer financial support for investments to meet environmental priorities
and support capacity building by making funds available for research and training, by
developing relevant guidance and encouraging the establishment of national advisory
points for cities.
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It is essential that Member States exploit the opportunities offered at EU level as
highlighted in this Strategy for the benefit of the local authorities. They are also
invited to support local authorities to meet the objectives of this Strategy by
promoting close cooperation and coordination between relevant administrative
bodies to identify effective solutions for their cities and regions.
The assessment of urban environment problems, the need for action at all levels and
the added value of EU level involvement was shared by all stakeholders, including
Member States5 in the numerous consultations held. The Commission examined
different options, including the desirability of legislating to ensure that integrated
management would be done at the local level (see impact assessment). However,
given the diversity of urban areas and existing national, regional and local
obligations, and the difficulties linked to establishing common standards on all urban
environment issues, it was decided that legislation would not be the best way to
achieve the objectives of this Strategy. Most Member States and local authorities
supported this approach, questioning the need for binding EU obligations on
environmental management and urban transport plans.
4. THE OBJECTIVES OF THE STRATEGY
The measures offered under this Strategy aim to contribute to a better
implementation of existing EU environment policies and legislation at the local level
by supporting and encouraging local authorities to adopt a more integrated approach
to urban management and by inviting Member States to support this process and
exploit the opportunities offered at EU level.
If implemented at all levels, the Strategy will ultimately contribute to improve the
quality of the urban environment, making cities more attractive and healthier places
to live, work and invest in, and reduce the adverse environmental impact of cities on
the wider environment, for instance as regards climate change.
5. THE MEASURES
The integrated approach to environmental management at the local level and to
transport in particular, based on effective consultation of all stakeholders, is key to
successful implementation of environment legislation and to achieve long lasting
improvements in environmental quality and performance. There is a need to support
local authorities in adopting these management techniques.
5.1.
Guidance on integrated environmental management
Adopting an integrated approach to the management of the urban environment helps
avoid conflicts between the range of policies and initiatives that apply in urban areas
and helps achieve a long-term vision for the development of the city. In addition to
the voluntary initiatives Local Agenda 21 and Aalborg Commitments,6 several

5 Council
Conclusions
14.10.2004.
6
www.aalborgplus10.dk
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Member States have legislated or put mechanisms in place to require integrated
management of the urban environment.7
Integrated approaches result in better planning and more significant results. Clearly
defined objectives, targets, accepted responsibilities, procedures for monitoring
progress, public consultation, review, audit and reporting are crucial for effective
implementation of measures. Many successful cities have put in place environmental
management systems such as EMAS or ISO 14001 to ensure the delivery of policy
objectives and provide public scrutiny on progress. Information campaigns about the
improvements delivered are important (e.g. European Mobility Week).
The Commission strongly recommends local authorities to take the necessary steps to
achieve greater use of integrated management at the local level and encourages
national and regional authorities to support this process.
The Commission will provide technical guidance in 2006 on integrated
environmental management, drawing on experiences and giving good practice
examples. Reference will be made to the most relevant EU environmental legislation
e.g. air, noise, water, waste and energy efficiency directives.
5.2.
Guidance on sustainable urban transport plans
Urban transport has a direct impact on air pollution, noise, congestion and CO2
emissions and it is fundamental to citizens and business. The adoption and
implementation of urban transport plans is obligatory in certain Member States.8
Some cities adopt plans on a voluntary basis to improve quality of life or in order to
comply with EU standards to protect human health (e.g. air quality).
Effective, transport planning requires long-term vision to plan financial requirements
for infrastructure and vehicles, to design incentive schemes to promote high quality
public transport, safe cycling and walking and to coordinate with land-use planning
at the appropriate administrative levels. Transport planning should take account of
safety and security, access to goods and services, air pollution, noise, greenhouse gas
emissions and energy consumption, land use, cover passenger and freight
transportation and all modes of transport. Solutions need to be tailor-made, based on
wide consultation of the public and other stakeholders, and targets must reflect the
local situation. The Commission strongly recommends local authorities to develop
and implement Sustainable Urban Transport Plans.
The Commission will provide technical guidance in 2006 on the main aspects of
transport plans based on the recommendations of the 2004 Expert Working Group9
and give best practice examples.

7
Belgium (Flanders), Denmark, France, Hungary, Poland, Slovenia: legislation; Cyprus, Czech
Republic: considering mechanisms; UK: some elements.
8
France, UK: legislation; Cyprus, Czech Republic: considering mechanisms; Italy: some elements.
9
europa.eu.int/comm/environment/urban/pdf/final_report050128.pdf
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5.3.
Support for EU wide exchange of best practices
Improving local authorities’ access to existing solutions is important to allow them to
learn from each other and develop solutions adapted to their specific situation. The
information has to be well structured, easily available and supported by the right
experts.
5.3.1.
Networking and Demonstration Projects
The exchange of experience between local authorities financed by the Commission
under the ‘Cooperation Framework’10 showed that there are many advantages in
working together to develop solutions for each local situation based on their
respective experiences and difficulties. The Commission proposes to continue
supporting comparable activities under the new LIFE+ Regulation.11 The Cohesion
Policy12 and the Research Framework Programme will offer similar opportunities as
well as demonstration projects on a range of urban environment issues.
The Commission will offer support for the exchange of good practice and for
demonstration projects on urban issues for local and regional authorities through
these instruments. Member States, regional and local authorities are encouraged to
exploit these opportunities.
5.3.2.
Network of National Focal Points on Urban Issues
Local authorities report difficulty in accessing information on initiatives which have
delivered promising results. Most good practice is not independently evaluated and is
not accessible in one place. The Commission is co-financing under URBACT a pilot
network of national focal points (‘European Knowledge Platform’13) to provide
structured and evaluated information on social, economic and environmental issues
in urban areas in response to enquiries from local authorities.
The Commission will evaluate the pilot (end 2006) and consider whether it can be
used as a building block for a “European framework programme for the exchange
of experience on urban development” under the proposed Cohesion Policy
2007-2013.
5.4. Commission
Internet
Portal for Local Authorities
At present, Communications, research findings, studies and guidance relevant to
local authorities are made available through different Commission websites, making
it difficult to find this information.

10 Decision
1411/2001/EC.
11 COM(2004)
621.
12 COM(2004)
495.
13
Led by the Dutch Ministry of the Interior with 15 Member States participating.
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As part of the Action Plan to improve communicating Europe14 the Commission is
exploring the development of thematic portals on the Europa website for certain
specialist audiences. A portal would provide links to all information of relevance and
would improve the flow of information.
The Commission will assess the feasibility of establishing a thematic portal for
local authorities.
5.5. Training
Many local authorities have expressed the need for specific skills to adopt an
integrated approach to management involving cross-sector cooperation and training
on specific environmental legislation, effective public participation and encouraging
changes in citizens’ behaviour.
‘Face to face’ training with the involvement of national, regional and local
authorities is regarded by stakeholders as the most valuable learning method. The
future LIFE+ Regulation is proposed to provide support for local capacity to assist in
the implementation of environmental policy. This could include exchange
programmes for officials in local authorities.
The Commission proposal for the European Social Fund15 also offers opportunities
for strengthening the efficiency of public administrations at regional and local level.
The Commission will use the new LIFE+ Regulation and other instruments to
support capacity building for local and regional authorities on urban management
issues, and it encourages Member States to initiate such activities.
5.6.
Drawing on Other Community Support Programmes
The Strategy will also need to draw on the opportunities presented by other policies
in order to achieve its objectives.
5.6.1. Cohesion
Policy
The Commission’s proposals for the Cohesion Fund16 and Structural Funds17 for the
period 2007-2013 include significant opportunities for assistance to address
environmental priorities in urban areas (e.g. waste management, urban waste-water
treatment, air quality, clean urban public transport, energy efficiency, rehabilitation
of contaminated land and integrated strategies for urban regeneration).
The Commission strongly encourages Member States to exploit these
opportunities to address the problems facing their urban areas and give the
National Strategic Reference Frameworks an appropriate urban focus.

14 SEC(2005)
985.
15 COM(2004)
493.
16 COM(2004)
494
.
17 COM(2004)
495.
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5.6.2. Research
Much EU research on urban issues is already carried out18 and actions 5.3-5.4 will
improve its dissemination. The Commission’s proposal for the 7th Framework
Programme for Research19 sets out that further research is considered useful on
innovative urban management, rehabilitation of the man-made environment
including the cultural heritage, environmental risk, energy efficiency, clean vehicles
and alternative fuels, mobility, safety and security.
The Commission will offer support for further urban research and will actively
involve local authorities and endeavour to make material developed for them
available in many languages to facilitate use at the local level.
6. SYNERGIES WITH OTHER POLICIES
This Strategy is cross-cutting, covering many environmental media and issues. It will
contribute to the implementation of the priorities of the 6th EAP and other
environmental policies, including the other Thematic Strategies.
Different environment policies (air quality, noise etc) ask that abatement plans be
drawn up. By placing these plans in the context of a local integrated framework as
proposed in this strategy, synergies between many policy areas can be developed,
giving improved results, both for the environment and for the overall quality of life
in the urban area.
6.1. Climate
change

Urban areas have an important role to play in both adapting to climate change and
mitigating greenhouse gas emissions.
Urban areas are vulnerable to the consequences of climate change such as flooding,
heat waves, more frequent and severe water shortages. Integrated urban management
plans should incorporate measures to limit environmental risk to enable urban areas
to deal better with such changes.
Priority areas for local authorities to decrease greenhouse gas emissions are transport
and building.
Wider implementation of Sustainable Urban Transport Plans including specific
measures to promote low CO2-emission and energy-efficient vehicles will help
reduce greenhouse gas emissions at the local level.
Sustainable construction improves energy efficiency with a corresponding decrease
in CO2 emissions. Local Authorities can promote such methods by raising awareness,
setting and enforcing standards where possible and adopting best practices for their
own buildings and buildings that they commission through green public
procurement. In this context, retrofitting of existing buildings is of significant

18
E.g. 145 ‘City of Tomorrow & Cultural Heritage’ projects.
19 COM(2005)
119.
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importance. The Commission strongly encourages Member States, regional and local
authorities to develop programmes to promote sustainable construction in their cities.
To promote energy efficiency and use of renewable energy among local and regional
actors, the Commission will also continue, in support of its energy policy, the use of
the Intelligent Energy – Europe programme.20 The Green Paper on Energy
Efficiency21 asks whether the Energy Performance of Buildings Directive22 should be
extended to smaller buildings when renovated.
To allow comparison of buildings across Europe and encourage exchange of best
practices, the Commission has mandated the European Standardisation Organisation
(CEN) to develop methods to assess the integrated environmental performance of
buildings (beyond energy efficiency).23
6.2.
Nature and Biodiversity
Sustainable urban design (appropriate land-use planning) will help reduce urban
sprawl and the loss of natural habitats and biodiversity. Integrated management of
the urban environment should foster sustainable land-use policies which avoid urban
sprawl and reduce soil-sealing, include promotion of urban biodiversity and raise
awareness for urban citizens.
The Thematic Strategy on Soil Protection, under development, is likely to address
the rehabilitation and reuse of brownfield sites and space-saving spatial planning
with the aim of reducing soil sealing and ensuring rational use of soil.
6.3.
Environment and the Quality of Life
Sustainable urban transport plans will help reduce air pollution and noise, and
encourage cycling and walking, improving health and reducing obesity. Sustainable
construction methods will help promote comfort, safety, accessibility and reduce
health impacts from indoor and outdoor air pollution, notably particulate matter from
heating systems.
Existing Air Quality legislation24 requires plans to be established when limit values
are or might be exceeded. Those situations are experienced in many cities,
particularly for particulate matter (PM10) pollution mainly emitted by road traffic and
combustion plants. In the context of its Thematic Strategy on Air Pollution,25 the
Commission will consider targets and measures26 aimed at controlling particulate
matter and ozone pollution, including Community measures relating to transport,
new vehicles and small combustion plants. Achieving Community air quality
objectives requires an integrated approach involving city authorities. Sustainable

20
Energy efficiency in buildings and industry (SAVE), cogeneration of heat and power, new and
renewable energy sources for electricity, heat, biofuels (ALTENER), energy aspects of transport
(STEER).
21 COM(2005)265
22 Directive
2002/91/EC.
23 CEN
Mandate
M/350.
24
europa.eu.int/comm/environment/air/ambient.htm
25 COM(2005)
446.
26
These measures will be subject to an impact assessment.
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Urban Transport Plans and better integrated management of the urban area, including
district heating, could help cities in complying with these obligations.
Transport plays a critical role in the context of climate change, air quality and
sustainable development. The Commission will consider a wide set of actions to
contribute to the improvement of the urban environment, including new vehicle
standards (EURO 5, EURO VI), it will reflect on measures to promote wider use of
differentiated charging in environmentally sensitive areas and for the designation of
low emission zones with restrictions for polluting transport. The Commission
recently adopted a proposal for a directive on the procurement of clean vehicles by
public authorities. 27
As part of the review of the Common Transport Policy28 the Commission will
address the need for further action in the field of urban transport, notably by
examining the role of private vehicles in cities and the means to improve the quality
of public transport.
The Commission intends to continue its funding of the CIVITAS Initiative29 that
helps cities in achieving a significant change in modal split, promote the use of
cleaner vehicles and tackle congestion. CIVITAS also supports training, exchange of
information and take up of results.
Noise maps and action plans on environmental noise are required by EU law30 to
reduce noise in major urban areas where exposure levels can induce harmful effects
on human health, and to protect quiet areas against increases in noise. Sustainable
Urban Transport Plans will help compliance with these requirements by identifying
measures to manage noise from urban transport.
6.4.
Sustainable use of natural resources
The Thematic Strategy on the sustainable use of natural resources31 will highlight the
importance of using natural resources in an efficient way which reduces
environmental impacts. Better urban management can reduce the impacts of day to
day use of resources such as energy and water. Avoiding urban sprawl through high
density and mixed-use settlement patterns offers environmental advantages regarding
land use, transport and heating contributing to less resource use per capita.
The proposed Directive under the Thematic Strategy on the Prevention and
Recycling of Waste32 clarifies the obligation for Member States to draw up waste
prevention programmes at the most appropriate geographical level. Integrated urban
environmental management should cover local waste prevention measures.

27 COM(2005)634
28 COM(2001)
370.
29
www.civitas-initiative.org
30 Directive
2002/49/EC.
31 COM(2005)
670.
32 COM(2005)
667.
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