European union system for the evaluation of substances: the second version

This publication presents major changes in the assessment of the risks of chemicals to human health and the environment as implemented in the second version of the European Union System for the Evaluation of Substances, EUSES 2.0. EUSES is a harmonised quantitative risk assessment tool for chemicals. It is the PC-implementation of the technical guidelines developed within the framework of EU chemical legislation for industrial chemicals and biocides. As such, it is designed to support decision making by risk managers in government and industry and to assist scientific institutions in the risk assessment for these substances. The development of EUSES 2.0 is a co-ordinated project of the European Chemicals Bureau, EU Member States and the European chemical industry. Several model concepts, the technical background and the user interface of EUSES have been improved considerably. Major changes in the environmental assessment such as the implementation of emission scenario documents for industrial chemicals and biocides, the addition of the marine risk assessment, the enhancement of the regional model to include global scales, and improvements in the secondary poisoning and environmental effects modelling will be discussed. The update of the human risk assessment module in EUSES focuses on the risk characterisation for both threshold and non-threshold substances with, among others, the introduction of assessment factors. The performance of EUSES is illustrated in an example showing the human and environmental risk assessment of a sanitation disinfectant for private use.     

Governance of Complex Socio-Environmental Risks: The Case of Hazardous Chemicals in the Baltic Sea

Complex socio-environmental risks challenge society. In response to scientific uncertainty and socio-political controversies, environmental governance, precaution, and the ecosystem approach to management are held forward as complements to governmental risk-based sector-restricted regulation. We analyze this development for hazardous substances in the Baltic Sea. Based on interviews and policy analysis, we study informal governance and, in particular, four central EU and international policies, and investigate how present governance relates to risks and objectives at hand. While showing emergence of broader governance approaches, we conclude that central objectives will not likely be met. Furthermore, we question the quest for broad environmental governance and emphasize the value of command and control regulation, if it implements precaution. These findings contribute to the theorizing on environmental (risk) governance. Finally, we provide some ideas that could help development and implementation of risk policies for hazardous chemicals in the Baltic Sea as well as other complex risks.     

The Precautionary Principle and Chemicals Regulation: Past Achievements and Future Possibilities (8 pages)

Background, Aim and Scope

The paper investigates the development of the institutional basis of the present modes of chemicals regulation and management, with special attention to interrelations with the precautionary principle. Main Features: The paper elucidates on how the precautionary principle has been shaped in relation to chemicals regulation and management since Carson's Silent Spring (years before the principle was confirmed as a policy-principle in German and European legislation. Furthermore, it is examined how the precautionary principle interacted with the development of the present chemicals regulatory regime, in a complex interplay within the OECD and Member Countries. The present modes of precaution in the new EU chemical legislation – REACH – are investigated with respect to the precautionary principle, and tested against two contemporary problems; brominated flame retardants and endocrine disrupting substances. Results: The analysis demonstrates the changing character of the integration of the precautionary principle. The main tendencies are from implicit to more explicit precaution and from a closed expert-orientation towards a more deliberative approach to scientific knowledge and uncertainty. The results demonstrate that the precautionary principle is manifest in both the design of the testing strategy and in policy provisions. In particular, the substitution of hazardous substances with less hazardous is important. Discussion: Despite explicit attention to the precautionary principle, is the present reformulation of the European Chemicals policy in danger of falling into loop-holes that equal problems related to the present regulation of existing chemicals? 'Precaution' has been reduced virtually to an abstract concept that is more or less devoid of practical meaning in the regulatory process. Conclusions: It is concluded that the role of the precautionary principle in chemicals regulation will require continued scrutiny in the future shaping of the REACH strategy. Perspectives: Continued development of robust and precaution-based chemicals regulation will have to involve both new data-generation strategies and new forms of political decision-making, with special attention given to transparency and deliberative policymaking.     

Spatial variations and temporal trends between 1994 and 2005 in polychlorinated biphenyls, organochlorine pesticides and heavy metals in European eel (Anguilla anguilla L.) in Flanders, Belgium

In Flanders, the northern region of Belgium, European yellow eel muscle tissue was used as an indicator of environmental and potential human dietary exposure by hazardous chemicals of surface waters and sediments. Between 1994 and 2005, over 2800 eel captured at 365 stations were analysed for PCBs, pesticides and heavy metals. Contamination of eel in Flanders fell within the range of reported concentrations in other watersheds of Western Europe. A spatial analysis of the data demonstrated that the variation in pollutant concentration tended towards higher values. This was especially evident for PCBs, lindane, endrin, dieldrin and DDE. The concentration of almost all banned substances decreased significantly during the study period.     

Baltic Sea hazardous substances management: results and challenges

The introduction into the Baltic Sea of hazardous substances that are persistent, bioaccumulate, and are toxic is an important environmental and human health problem. Multilateral efforts to address this problem have primarily been taken under the Helsinki Commission (HELCOM). This article examines past HELCOM efforts on hazardous substances, and discusses future challenges regarding their management. The article finds that past actions on hazardous substances have had a positive effect on improving Baltic environmental quality and reducing human health risks, although there are remaining issues and difficulties that need to be addressed. In particular, four related future challenges for HELCOM management of hazardous substances are identified and discussed: i) the need to engender further implementation and building public and private sector capacities; ii) the need to improve data availability, quality and comparability across the region and international fora; iii) the need to strengthen existing regulations and incorporate new issues; and iv) the need to effectively coordinate HELCOM activities with efforts on hazardous substances in other international fora.     

Chemical leasing in the context of sustainable chemistry

Chemical leasing is a new and innovative approach of selling chemicals. It aims at reducing the risks emanating from hazardous substances and ensuring long-term economic success within a global system of producing and using chemicals. This paper explores how, through chemical leasing, the consumption of chemicals, energy, resources and the generation of related wastes can be reduced. It also analyses the substitution of hazardous chemicals as a tool to protect environmental, health and safety and hence ensure compliance with sustainability criteria. For this, we are proposing an evaluation methodology that seeks to provide an answer to the following research questions: (1) Does the application of chemical leasing promote sustainability in comparison to an existing chemicals production and management system? 2. If various chemical leasing project types are envisaged, which is the most promising in terms of sustainability? The proposed methodology includes a number of basic goals and sub-goals to assess the sustainability for eight different chemical leasing case studies that have been implemented both at the local and the national levels. The assessment is limited to the relative assessment of specific case studies and allows the comparisons of different projects in terms of their relative contribution to sustainable chemistry. The findings of our assessment demonstrate that chemical leasing can be regarded as promoting sustainable chemistry in five case studies with certainty. However, on the grounds of our assessment, we cannot conclude with certainty that chemical leasing has equivalent contribution to sustainable chemistry in respect of three further case studies.     

Towards sets of hazardous waste indicators. Essential tools for modern industrial management

Decision-makers require useful tools, such as indicators, to help them make environmentally sound decisions leading to effective management of hazardous wastes. Four hazardous waste indicators are being tested for such a purpose by several countries within the Sustainable Development Indicator Programme of the United Nations Commission for Sustainable Development. However, these indicators only address the 'down-stream' end-of-pipe industrial situation. More creative thinking is clearly needed to develop a wider range of indicators that not only reflects all aspects of industrial production that generates hazardous waste but considers socio-economic implications of the waste as well. Sets of useful and innovative indicators are proposed that could be applied to the emerging paradigm shift away from conventional end-of-pipe management actions and towards preventive strategies that are being increasingly adopted by industry often in association with local and national governments. A methodological and conceptual framework for the development of a core-set of hazardous waste indicators has been developed. Some of the indicator sets outlined quantify preventive waste management strategies (including indicators for cleaner production, hazardous waste reduction/minimization and life cycle analysis), whilst other sets address proactive strategies (including changes in production and consumption patterns, eco-efficiency, eco-intensity and resource productivity). Indicators for quantifying transport of hazardous wastes are also described. It was concluded that a number of the indicators proposed could now be usefully implemented as management tools using existing industrial and economic data. As cleaner production technologies and waste minimization approaches are more widely deployed, and industry integrates environmental concerns at all levels of decision-making, it is expected that the necessary data for construction of the remaining indicators will soon become available.     

Toxicological evaluation for the hazard assessment of tire crumb for use in public playgrounds

Disposal of used tires has been a major problem in solid waste management. New uses will have to be found to consume recycled tire products. One such proposed use is as ground cover in playgrounds. However, concern has been expressed regarding exposure of children to hazardous chemicals and the environmental impact of such chemicals. We designed a comprehensive hazard assessment to evaluate and address potential human health and environmental concerns associated with the use of tire crumb in playgrounds. Human health concerns were addressed using conventional hazard analyses, mutagenicity assays, and aquatic toxicity tests of extracted tire crumb. Hazard to children appears to be minimal. Toxicity to all aquatic organisms (bacteria, invertebrates, fish, and green algae) was observed; however, this activity disappeared with aging of the tire crumb for three months in place in the playground. We conclude that the use of tire crumb in playgrounds results in minimal hazard to children and the receiving environment.     

Toxicological Evaluation for the Hazard Assessment of Tire Crumb for Use in Public Playgrounds

Abstract

Disposal of used tires has been a major problem in solid waste management. New uses will have to be found to consume recycled tire products. One such proposed use is as ground cover in playgrounds. However, concern has been expressed regarding exposure of children to hazardous chemicals and the environmental impact of such chemicals. We designed a comprehensive hazard assessment to evaluate and address potential human health and environmental concerns associated with the use of tire crumb in playgrounds. Human health concerns were addressed using conventional hazard analyses, mutagenicity assays, and aquatic toxicity tests of extracted tire crumb. Hazard to children appears to be minimal. Toxicity to all aquatic organisms (bacteria, invertebrates, fish, and green algae) was observed; however, this activity disappeared with aging of the tire crumb for three months in place in the playground. We conclude that the use of tire crumb in playgrounds results in minimal hazard to children and the receiving environment.     

Development and implementation of surface water quality standards for protection of human health in Korea

Current water quality standards for the protection of human health in Korea include 17 substances found in rivers and streams. Due to increasing concern over the release of hazardous chemicals into the aquatic environment, there has been a demand for additional water quality standards. Therefore, the Korean Ministry of the Environment plans to gradually increase the number of water quality standards to 30 substances, including 22 substances for protection of human health and 8 substances for protection of aquatic ecosystems by 2015. In this study, new water quality standards for protection of human health were established for 1,4-dioxane, formaldehyde, and hexachlorobenzene. We selected candidate hazardous chemicals, conducted a human health risk assessment to determine priority chemicals, established water quality standards based on technical analyses and comparison with domestic and developed countries’ water quality standards, and conducted an expert review. Water quality standards for protection of aquatic ecosystems will be derived in the near future. This study describes how the water quality standards for protection of human health were developed and implemented. Current status, recent expansion, and future plans for water quality standards in Korea are also covered.     

Recommendations on chemicals management policy and legislation in the framework of the Egyptian–German twinning project on hazardous substances and waste management

The sustainable management of chemicals and their associated wastes—especially legacy stockpiles—is always challenging. Developing countries face particular difficulties as they often have insufficient treatment and disposal capacity, have limited resources and many lack an appropriate and effective regulatory framework. This paper describes the objectives and the approach of the Egyptian–German Twinning Project under the European Neighbourhood Policy to improve the strategy of managing hazardous substances in the Egyptian Environmental Affairs Agency (EEAA) between November 2008 and May 2011. It also provides an introduction to the Republic of Egypt’s legal and administrative system regarding chemical controls. Subsequently, options for a new chemical management strategy consistent with the recommendations of the United Nations Chemicals Conventions are proposed. The Egyptian legal and administrative system is discussed in relation to the United Nations’ recommendations and current European Union legislation for the sound management of chemicals. We also discuss a strategy for the EEAA to use the existing Egyptian legal system to implement the United Nations’ Globally Harmonized System of Classification and Labelling of Chemicals, the Stockholm Convention and other proposed regulatory frameworks. The analysis, the results, and the recommendations presented may be useful for other developing countries in a comparable position to Egypt aspiring to update their legislation and administration to the international standards of sound management of chemicals.     

Chemical leasing: cooperative business models for sustainable chemicals management. Summary of research projects commissioned by the Austrian Federal Ministry of Agriculture, Forestry, Environment and Water Management

- Sustainable chemistry - Section editors: Klaus Günter Steinhäuser, Steffi Richter, Petra Greiner, Jutta Penning, Michael AngrickBackground, Aim and Scope Chemicals play a vital role in the day-to-day life of industrialised societies. Their use is not restricted to the chemical enterprises per se, but is a crucial part of production processes in a lot of industrial sectors. Traditional instruments of environmental policy (such as bans, restrictions) can only deal with the most hazardous substances. The Johannesburg Implementation Plan of 2002 calls for more sustainable patterns of production and consumption, and sets the year of 2020 as a goal to use chemicals in a way that human health and the environment are not endangered. Political instruments should not only gather more knowledge about the properties of chemicals, but should also stimulate the environmentally sound use of chemicals. Existing business models should therefore be reviewed in relation to this strategic approach to encourage marketing options with respect to the environmental focus.Main Features Business models were examined for their effects on the consumption of chemicals and amount of waste emissions in relation to their economic potential. Different possibilities for cooperation of supplier, user and disposal companies were elaborated and examined with a view to the specific situation in Austria.Results and Discussion A range of cooperative models – summarised under the term ‘chemical leasing’ - was identified, which can contribute to a more efficient use of resources. 12 main possible application areas (cleaning, lubrication, paint stripping and others) have been identified in Austria. If chemical leasing models were applied in these areas, the amounts of chemicals currently used could be reduced by one third (53,000 tonnes per year). Cost reductions of up to 15 % can be expected.Conclusion The application of chemical leasing models can contribute considerably to achieving more sustainable and resource-efficient patterns of production. The Austrian Ministry for Environment has therefore decided to subsidise the further practical implementation of these new service-oriented business models. Pilot projects in 4 enterprises, which are supervised by consulting companies, are currently being carried out. Recommendation and Outlook The experiences of the pilot projects will serve as valuable building blocks for the wider use of chemical leasing models. Furthermore, the UNIDO Cleaner Production Centres have expressed their clear interest and will examine the possibility to use chemical leasing as a part of their Cleaner Production Programmes.     

Reducing fluxes of faecal indicator compliance parameters to bathing waters from diffuse agricultural sources: the Brighouse Bay study, Scotland

The European Water Framework Directive requires the integrated management of point and diffuse pollution to achieve 'good' water quality in 'protected areas'. These include bathing waters, which are regulated using faecal indicator organisms as compliance parameters. Thus, for the first time, European regulators are faced with the control of faecal indicator fluxes from agricultural sources where these impact on bathing water compliance locations. Concurrently, reforms to the European Union (EU) Common Agricultural Policy offer scope for supporting on-farm measures producing environmental benefits through the new 'single farm payments' and the concept of 'cross-compliance'. This paper reports the first UK study involving remedial measures, principally stream bank fencing, designed to reduce faecal indicator fluxes at the catchment scale. Considerable reduction in faecal indicator flux was observed, but this was insufficient to ensure bathing water compliance with either Directive 76/160/EEC standards or new health-evidence-based criteria proposed by WHO and the European Commission.     

Effect thresholds and ‘Adequate Control’ of risks

BACKGROUND: Preparation of the new European REACH (Registration, Evaluation and Authorisation of CHemicals) regulation on chemicals has reached a critical stage. Depending on how key elements of the legislative proposal are finalised, especially that on authorisation of uses of 'substances of very high concern', REACH could either provide an effective measure to drive innovation towards cleaner and safer alternatives, or instead lead to further avoidable chemical exposures on the basis of demonstrated 'adequate control' of risks. Given that some key indicators of human and wildlife reproductive health continue to decline in parts of Europe, while evidence for chemical exposure as a contributory factor grows, it will clearly be vital to get the legislation right. GOAL AND SCOPE: Whereas there is now a consensus between the European Parliament and Council of the European Union that uses of persistent, bioaccumulative and toxic (PBT) and very persistent and very bioaccumulative (vPvB) substances should only be permitted when no safer alternatives are available, major differences remain regarding the manner in which other 'substances of very high concern' (including substances which are carcinogenic, mutagenic or toxic to reproduction (CMRs) and endocrine disruptors) are addressed. This paper examines those differences in more detail and proposes some ways forward. METHODS: Using case studies of specific chemicals as examples, the paper critically evaluates the concepts of 'effect thresholds' and 'adequate control' of risks, which underpin the Council's proposal for many CMRs and endocrine disruptors. RESULTS: The subjectivity and uncertainties inherent in the threshold approach proposed by the Council, as illustrated by these case examples, bring its ability to ensure a high level of protection for the environment and human health into question: i. the nature and extent of toxic effects recorded depend on many different factors, including the type of test and conditions selected, the organisms exposed, the timing of exposure and precisely which effects are measured and over what timeframe. ii. doses considerably below 'no effect levels' for survival could nevertheless be causing significant impairment to health and/or reproductive success. iii. chemicals present in mixtures at levels below established thresholds for effects may, in combination, induce significant toxicological responses. DISCUSSION: Under the Council's current proposal, companies will be granted authorisations for some uses of CMRs and endocrine disruptors, even if safer alternatives without these properties are already on the market. The high level of evidence required for identification of substances as being of equivalent concern represents an additional weakness in the Council approach. CONCLUSIONS: Instead, a requirement (along the lines of the Parliament's proposals) to address the availability of alternatives in all cases, to use them when available and to initiate their development when not, represents a more robust, defensible and protective approach to the management of 'substances of very high concern'. The possibility for authorisation of essential uses would remain, while all avoidable uses and exposures would progressively be prevented and sustainable innovation supported. PERSPECTIVES: In the long run, this can only lead to a more sustainable future for the chemical industry in Europe, as well as delivering benefits of increased protection for our environment and health for generations to come.     

Implications of research on endocrine disruption for the environmental risk assessment, regulation and monitoring of chemicals in the European Union

We assess the implications which research on endocrine disrupting chemicals (EDCs) has for the regulation of synthetic substances and for the protection of the environment, particularly under the forthcoming European Union (EU) REACH legislation. EDCs present regulatory problems inter alia because they can act additively at concentrations which are individually harmless, and they may have non-classical dose (concentration)-response relationships at low exposure levels. Furthermore, current in vivo testing routines were not specifically designed to assess the endocrine disrupting properties of chemicals, whilst in silico and in vitro methods have only limited applicability and availability for this purpose. We need to ensure that the assessment approaches specified in the draft REACH legislation and Technical Guidance are able to evaluate EDCs efficiently. However, it must also be recognised that environmental monitoring procedures in Europe will need to be improved to detect EDCs that have evaded identification, and where appropriate, control, under REACH.     

A rule-based screening environmental risk assessment tool derived from EUSES

Within the context and scope of the forthcoming European Union chemical regulations (REACH), there is a need to be able to prioritise the chemicals for evaluation. Therefore, a simple, pragmatic and adequately conservative approach for the identification of substances of very low or no immediate concern at an early stage is presented. The fundamental principles and basic concepts are derived from the EU Technical Guidance Document and EUSES, and are translated into an easy-to-use rule-based system. For this development, the effect on risk characterisation ratios (RCRs) of the key environmental parameters in EUSES was quantified (taking into account several standardised chemical release scenarios). Using statistical analysis, ranges were identified for each key parameter, within which the end result of the assessment was not significantly affected. This information was then translated into a lookup table from which environmental risk characterisation ratios can be directly read as a function of a few parameters.     

New indicator approaches for effective urban air quality management

Measurements of urban air quality at monitoring stations in developed countries have frequently involved the criteria gaseous pollutants, particulates, hazardous air pollutants, perceived air quality and relevant meteorological conditions. Large numbers of indicators have therefore been established to quantify emissions, concentrations and environmental and human health impacts of each of these groups of substances. To simplify the data for management, several indicators have been grouped together to form urban air quality indices but the weightings of individual variables is contentious. In industrialising and developing countries, data may be limited and traditional air pollutant indicators cannot often be constructed. The emphasis therefore has to be placed on the development of policy-relevant indicators, such as Response Indicators that reflect different policy principles for regulating air pollutant emissions. Indices that quantify the air quality management capabilities and capacities at the city level provide further useful decision-relevant tools. Four sets of indices, namely, 1. air quality measurement capacity, 2. data assessment and availability, 3. emissions estimates, and 4. management enabling capabilities, and a composite index to evaluate air quality management capability, were constructed and applied to 80 cities. The indices revealed that management capability varied widely between the cities. In some of the cities, existing national knowledge on urban air quality could have been more effectively used for management. It was concluded that for effective urban air quality management, a greater emphasis should be given, not just to monitoring and data capture programmes, but to the development of indicators and indices that empower decision-makers to initiate management response strategies. Over-reliance on restricted, predetermined sets of traditional air quality indicators should be avoided.     

The spatial scale of organic chemicals in multimedia fate modeling. Recent developments and significance for chemical assessment

In the last years, the spatial range (SR) or characteristic travel distance (CTD) of organic chemicals has found increasing scientific interest as an indicator of the long-range transport (LRT) potential and, in combination with persistence, as a kind of 'hazard' indicator on the exposure level. This development coincides with European debates about more effective and more preventive approaches to the chemicals assessment, and about an international, legally-binding instrument for the phase out of persistent organic pollutants (POPs). Persistence and LRT potential are important issues in these debates. Here, the development of the concept of assessing the spatial scale from early ideas in the 1970s and 1980s to recent studies in the field of multimedia fate and transport modeling is summarized. Different approaches to the modeling of environmental transport (advective and dispersive) and different methods for quantifying the SR or CTD are compared. Relationships between SR or CTD and different persistence measures are analyzed. Comparison of these relationships shows that conclusions for chemical assessment should be based on an evaluation of different persistence and spatial scale measures. The use of SR or CTD and persistence as hazard indicators in the chemicals assessment is illustrated.     

Environmental product attributes in end-of-life management in the UK. Part I: an end-of-life eco-declaration for waste IT and office equipment

The focus of this paper and its companion (Part II) is to identify producer responsibility associated with the proposed Waste from Electrical and Electronic Equipment (WEEE) Directive and the need for greater information about the environmental attributes of electrical and electronic equipment to facilitate end-of-life management of discarded products. Recently, a wide-ranging debate has started within the IT industry centred on the best way to define the exact nature of the information that needs to be supplied to recyclers by producers in order to comply with the proposed European Commission Directive. Using IT and office equipment as an indicative example, semi-structured telephone interviews were conducted with representatives of the UK electronics end-of-life management industry about the environmental attributes that are needed for compliance with the draft Directive. The results of this research indicate there is specific information about equipment that is required on a regular basis, the most important of which is centred on hazardous substances and materials contained in whole units, parts and components of that equipment. The content of an eco-declaration for end-of-life management of IT and office equipment derived from quantitative and qualitative interview data is presented.     

Principles and perspectives

BACKGROUND, AIM AND SCOPE: With respect to the enormous increase of chemical production in the last decades and the tens of thousands of individual chemicals on the market, the permanent improvement of chemical management is a permanent target to achieve the goals of sustainable consumption and production set by the WSSD in Johannesburg 2002. MAIN FEATURES: Several approaches exist to describe sustainability of chemistry. However, commonly agreed criteria are still missing. There is no doubt that products of modern chemistry help to achieve important goals of sustainability and that significant improvements have occurred regarding direct releases from production sites, but several facts demonstrate that chemistry is far from being sustainable. Still too many chemicals exhibit hazardous characteristics and pose a risk to health and environment. Too many resources are needed to produce chemicals and finished products. RESULTS AND CONCLUSION: Therefore, a strategy for sustainability of chemistry should be developed which comprises the following main elements: 1. Sustainable chemicals: sustainable chemical management includes a regulatory framework which makes no difference between new and existing chemicals, contains efficient information flow through the supply chain which allows users to handle chemicals safely and offers an authorisation procedure and/or an efficient restriction procedure for substances of high concern. This regulatory scheme should promote the development of inherently safe chemicals. 2. Sustainable chemical production: Sustainable chemical production needs the development and implementation of emerging alternative techniques like selective catalysis, biotechnology in order to release less CO2 and less toxic by-products, to save energy and to achieve higher yields. Information exchange on best available techniques (BAT) and best environmental practices (BEP) may help to promote changes towards more sustainability. 3. Sustainable products: An integrated product policy which provides a framework for sustainable products promotes the development of products with a long-term use phase, low resource demand in production and use, low emission of hazardous substances and properties suitable for reuse and recycling. This may be promoted by eco-labelling, chemical leasing concepts and extended information measures to enhance the demand of consumers and various actors in the supply chain for sustainable products. RECOMMENDATION AND PERSPECTIVE: Important tools for the promotion of sustainable chemistry are the abolition of barriers for innovation in legislation and within the chemical industry, more transparency for all users of chemical products, a new focus on sustainability in education and research, and a new way of thinking in terms of sustainability.