[pic] | COMMISSION OF THE EUROPEAN COMMUNITIES |

[pic] | KOMISIJA EVROPSKIH SKUPNOSTI |

Brussels, 20.8.2009

Bruselj, 20.8.2009

COM(2009) 433 final

COM(2009) 433 konč.

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE EUROPEAN PARLIAMENT

SPOROČILO KOMISIJE SVETU IN EVROPSKEMU PARLAMENTU

GDP and beyond Measuring progress in a changing world

BDP in več Merjenje napredka v svetu, ki se spreminja

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE EUROPEAN PARLIAMENT

SPOROČILO KOMISIJE SVETU IN EVROPSKEMU PARLAMENTU

GDP and beyond Measuring progress in a changing world

BDP in večMerjenje napredka v svetu, ki se spreminja

1. INTRODUCTION

1. UVOD

Gross Domestic Product (GDP) is the best known measure of macro-economic activity.[1] Developed in the 1930s, GDP has become a standard benchmark used by policy-makers throughout the world and is widely used in public debates. GDP aggregates the value added of all money-based economic activities. It is based on a clear methodology that allows comparisons to be made over time and between countries and regions.

Bruto domači proizvod (BDP) je najbolj poznana meritev makroekonomske aktivnosti[1]. BDP, ki je bil razvit v tridesetih letih dvajsetega stoletja, je postal standardna referenca za načrtovalce politik po vsem svetu in se široko uporablja v javnih razpravah. BDP sešteva dodano vrednost vseh gospodarskih aktivnosti, ki temeljijo na denarju. Temelji na jasni metodologiji, ki omogoča primerjave v času ter med državami in regijami.

GDP has also come to be regarded as a proxy indicator for overall societal development and progress in general. However, by design and purpose, it cannot be relied upon to inform policy debates on all issues. Critically, GDP does not measure environmental sustainability or social inclusion and these limitations need to be taken into account when using it in policy analysis and debates.[2]

BDP velja tudi za nadomestni kazalnik celostne družbene razvitosti in napredka na splošno. Vendar se nanj zaradi njegove zgradbe in namena v razpravah o politikah ne more zanašati glede vseh vprašanj. Zlasti BDP ne meri okoljske trajnosti ali socialne vključenosti, in ko se ga v analizah ter razpravah o politikah uporablja, je treba te omejitve upoštevati[2].

The need to improve data and indicators to complement GDP has been increasingly recognised and is the focus of a number of international initiatives. These initiatives also reflect renewed societal and political priorities. In November 2007, the European Commission (together with the European Parliament, the Club of Rome, the WWF and the OECD) organised the Beyond GDP conference.[3] The conference revealed strong support from policy-makers, economic, social and environmental experts and civil society for developing indicators that complement GDP and aim to provide more comprehensive information to support policy decisions.

Potreba po izboljšanju podatkov in kazalnikov, ki dopolnjujejo BDP, je vedno bolj izražena in je v središču številnih mednarodnih pobud. Te prav tako kažejo tudi na prenovljene družbene in politične prioritete. Novembra 2007 je Evropska komisija (skupaj z Evropskim parlamentom, Rimskim klubom, WWF in OECD) organizirala Konferenco o preseganju BDP[3]. Konferenca je pokazala močno podporo oblikovalcev politik, ekonomskih, družbenih in okoljskih strokovnjakov ter civilne družbe razvoju kazalnikov, ki dopolnjujejo BDP in katerih cilj je zagotoviti celovitejše informacije v podporo odločitev o politikah.

This Communication therefore identifies a number of actions that can be taken in the short to medium term. The overall aim is to develop more inclusive indicators that provide a more reliable knowledge base for better public debate and policy-making. The Commission intends to cooperate with stakeholders and partners to develop indicators that are internationally recognised and implemented.

Zato to sporočilo določa številne ukrepe, ki jih je mogoče sprejeti v kratko- do srednjeročnem obdobju. Splošni cilj je razviti kazalnike, ki vključujejo več dejavnikov in zagotavljajo zanesljivejšo bazo znanja za boljše javne razprave in oblikovanje politik. Komisija namerava za razvoj kazalnikov, ki so mednarodno priznani in uveljavljeni, sodelovati z zainteresiranimi stranmi in partnerji.

2. MEASURING PROGRESS IN A CHANGING WORLD

2. MERJENJE NAPREDKA V SVETU, KI SE SPREMINJA

2.1. Improved indicators reflecting new political and technical context

2.1. Izboljšani kazalniki, ki odražajo nov politični in tehnični okvir

The EU bases several policy decisions and instruments on GDP. In the current economic downturn, restoring economic growth is the major concern, and GDP growth is a key indicator to assess the effectiveness of the EU and national governments' recovery plans.

Več odločitev o politikah in instrumentov EU temelji na BDP. Ponovna vzpostavitev gospodarske rasti je v času sedanjega upada gospodarstva glavna naloga, rast BDP pa je ključni kazalnik za ocenjevanje učinkovitosti načrtov EU in nacionalnih oblasti za oživitev.

When the European Council endorsed the European Economic Recovery Plan[4] it recognised that the crisis should also be taken as an opportunity to set our economy more firmly on the path to a low-carbon and resource-efficient economy. The response to the crisis should seek to protect the hardest hit and the most vulnerable in society. These challenges point to the need for more inclusive markers than just GDP growth; for indicators that concisely incorporate social and environmental achievements (such as improved social cohesion, accessibility and affordability of basic goods and services, education, public health and air quality) and losses (e.g., increasing poverty, more crime, depleting natural resources). The reflections on indicators contained in this Communication could contribute to setting new strategic goals for the post-2010 Lisbon Strategy.

Ko je Evropski svet potrdil Evropski načrt za oživitev gospodarstva[4], je priznal, da je treba krizo jemati tudi kot priložnost, da naše gospodarstvo odločneje ubere pot h gospodarstvu z majhnimi emisijami ogljika in učinkovito izrabo naravnih virov. Odziv na krizo naj bi zaščitil tiste, ki jih je kriza najbolj prizadela, in najranljivejše v družbi. Ti izzivi kažejo na potrebo po bolj vključujočih kazalnikih kot le rasti BDP; po kazalnikih, ki zgoščeno vključujejo družbene in okoljske dosežke (kot so izboljšana socialna kohezija, dostopnost ter preskrbljivost osnovnih dobrin in storitev, izobraževanja, javnega zdravstva ter kakovost zraka) in izgube (kot so naraščajoča revščina, porast kriminala, osiromašenje naravnih virov). Razmišljanja o kazalnikih, vsebovana v pričujočem poročilu, bi lahko prispevala k postavitvi novih strateških ciljev za lizbonsko strategijo po letu 2010.

Statistical techniques and computing technologies have also developed beyond recognition since the inception of national accounts and GDP. The EU finances several research projects on new indicators reflecting wider public concerns than those currently covered by GDP. There are no insuperable technical obstacles to developing the quality and scope of our indicators even further so that policy decisions can progressively be based on a more integrated, balanced and timely view of social, economic and environmental facts.

Od zasnove nacionalnih računov in BDP so se do nerazpoznavnosti spremenile tudi statistične tehnike in računske tehnologije. EU financira številne projekte, s katerimi se raziskujejo novi kazalniki, ki bi odražali širše javne interese kot jih trenutno zajema BDP. Za nadaljnji razvoj kakovosti in dometa naših kazalnikov, s čimer bi omogočili, da bi odločitve o politikah vedno bolj temeljile na enotnem, uravnoteženem in pravočasnem vpogledu v družbena, gospodarska in okoljska dejstva, ni nobenih nepremostljivih ovir.

2.2. Building on international and Member States efforts

2.2. Gradnja na mednarodnih prizadevanjih in prizadevanjih držav članic

Reflection on how to complement GDP is not new. Several routes are being explored by international and national institutions. The UNDP has developed a Human Development Index (HDI) to benchmark countries based on combined measurement of GDP, health and education. The World Bank with its calculation of genuine savings has pioneered the inclusion of social and environmental aspects when assessing the wealth of nations. The OECD is running the Global Project on Measuring the Progress of Societies fostering the use of novel indicators in a participatory way. Several NGOs measure the "ecological footprint" – a measurement that has been formally recognised as a target for environmental progress by some public authorities. Researchers have published pilot indices of well-being and life satisfaction. The EU and Member States have developed and use a broad range of social and environmental indicators, often regrouped in sets of sustainable development indicators. The EU also promotes and supports the use of internationally recognised indicators in neighbouring countries and developing countries. Integrated economic and environmental accounts are increasingly providing a wealth of information based on sound methodology.

Razmišljanje, kako dopolniti BDP, ni novo. Mednarodne in nacionalne ustanove raziskujejo več načinov. UNDP je razvil indeks človekovega razvoja (HDI, po angleško human development index ) za označitev držav na podlagi merjenja BDP, zdravja in izobrazbe. Svetovna banka je s svojim izračunom resničnih prihrankov utrla pot vključevanju družbenih in okoljskih vidikov v ocenjevanje bogastva narodov. OECD vodi Svetovni projekt o merjenju napredka družb in spodbuja uporabo novih kazalnikov na vključevalen način. Mnoge nevladne organizacije merijo „ekološko sled“ – meritev, ki so jo nekateri javni organi uradno priznali kot cilj za okoljski napredek. Raziskovalci so objavili pilotne indekse blaginje in zadovoljstva z življenjem. EU in njene države članice so razvile in uporabljajo širok razpon socialnih in okoljskih kazalnikov, ki so pogosto prerazporejeni v nize kazalnikov trajnostnega razvoja. EU prav tako spodbuja in podpira uporabo mednarodno priznanih kazalnikov v sosednjih državah in državah v razvoju. Enotna gospodarska in okoljska poročila vedno bolj zagotavljajo obilico informacij, ki temeljijo na zanesljivi metodologiji.

Against this context, solutions to improve, adjust or complement GDP are being sought. Most recently, France set up the high level Commission on the Measurement of Economic Performance and Social Progress, chaired by Joseph Stiglitz, in order "to identify the limits of GDP as an indicator of economic performance and social progress" and "to consider additional information required for the production of a more relevant picture". Its report is due later this year.

V zvezi s tem se iščejo rešite za izboljšanje, prilagoditev ali dopolnitev BDP. Francija je pred kratkim na visoki ravni vzpostavila Komisijo za merjenje gospodarske storilnosti in družbenega napredka, ki ji predseduje Joseph Stiglitz, da bi „ugotovila omejite BDP kot kazalnika gospodarske storilnosti in družbenega napredka“ ter „preučila dodatne informacije, potrebne za stvaritev ustreznejše slike“. Navedena komisija naj bi izdala poročilo kasneje v tem letu.

The Commission closely monitors and in many cases contributes to these developments to ensure international comparability between indicators.

Komisija podrobno spremlja in v mnogih primerih tudi prispeva k temu razvoju, da bi zagotovila mednarodno primerljivost med kazalniki.

2.3. Improved indicators meeting citizens' concerns

2.3. Izboljšani kazalniki zadovoljujejo interese državljanov

These initiatives are in line with public opinion as citizens aspire to balanced progress.

Te pobude so v skladu z javnim mnenjem, saj si državljani prizadevajo k uravnoteženemu napredku.

A 2008 Eurobarometer poll showed that more than two thirds of EU citizens feel that social, environmental and economic indicators should be used equally to evaluate progress. Only just under one sixth prefer evaluation based mostly on economic indicators. An international poll in 2007 gave similar results.[5]

Raziskava Eurobarometra iz leta 2008 je pokazala, da več kot dve tretjini državljanov EU menita, da bi se socialni, okoljski in gospodarski kazalniki morali enakovredno uporabljati za ocenjevanje napredka. Samo nekoliko manj kot šestina ima rajši ocene, ki temeljijo večinoma na gospodarskih kazalnikih. V letu 2007 je mednarodna raziskava dala podobne rezultate[5].

Studies have also revealed that citizens can feel distanced from statistical information. GDP may be growing, but disposable incomes and public services are perceived as shrinking. As societies become more diverse, indicators based on averages or "the typical consumer" are not sufficient to fulfil the information needs from citizens and policy-makers. Complementing GDP with additional concise metrics that reflect wider public concerns would demonstrate greater linkage between EU policy and citizens' preoccupations.

Raziskave so pokazale tudi, da se ljudje počutijo odmaknjene od statističnih informacij. Res je, da BDP raste, vendar se zaznava, da se razpoložljivi dohodek in javne službe krčijo. S tem ko postajajo družbe čedalje bolj raznolike, kazalniki, ki temeljijo na povprečjih ali „tipičnih potrošnikih“, ne zadoščajo več potrebam državljanov in oblikovalcev politik. Dopolnitev BDP z dodatnimi jasnimi meritvami, ki odražajo širše javne interese, bi pokazala večjo povezanost med politiko EU in skrbmi državljanov.

3. FIVE ACTIONS TO BETTER MEASURE PROGRESS IN A CHANGING WORLD

3. PET UKREPOV ZA BOLJšE MERJENJE NAPREDKA V SVETU, KI SE SPREMINJA

Against this background, the Commission proposes to implement the following five actions, which can be revised or supplemented in the light of the review planned in 2012.

V zvezi s tem Komisija predlaga izvajanje naslednjih petih ukrepov, ki se jih lahko pregleda in dopolni v okviru pregleda, načrtovanega v letu 2012.

3.1. Complementing GDP with environmental and social indicators

3.1. Dopolnjevanje BDP z okoljskimi in socialnimi kazalniki

Indicators that summarise important issues with a single figure are essential communication tools. They trigger policy debate and give people a feel for whether or not progress is on track. GDP and the unemployment and inflation rates are prominent examples of such summary indicators. But they are not meant to reflect where we stand on issues such as the environment or social inequalities. To fill this gap, the Commission services intend to develop a comprehensive environmental index and improve quality-of-life indicators.

Kazalniki, ki pomembna vprašanja povzemajo z eno samo številko, so bistveno komunikacijsko orodje. Sprožajo politične razprave in ljudem dajejo občutek o tem, ali je napredek na dobri poti. BDP in stopnja brezposelnosti ter inflacije so izraziti primeri tovrstnih zgoščenih kazalnikov. Vendar njihov namen ni odražati, kakšno je stanje na področjih okolja in socialne neenakosti. Za zapolnitev te vrzeli nameravajo službe Komisije razviti izčrpen okoljski indeks in izboljšati kazalnike o kakovosti življenja.

3.1.1. A comprehensive environmental index

3.1.1. Izčrpen okoljski indeks

There is currently no comprehensive environmental indicator that can be used in policy debates alongside GDP. Such a single measurement for the environment would help foster a more balanced public debate on societal objectives and progress. Close candidates for such a purpose are the ecological and carbon footprints, but both are limited in scope.[6] As methodologies for composite indices and data are now sufficiently mature[7], Commission services intend to present a pilot version of an index on environmental pressure in 2010.

Trenutno ni nobenega izčrpnega okoljskega kazalnika, ki bi se poleg BDP lahko uporabil v razpravah o politikah. Takšna edinstvena meritev za okolje bi pripomogla k spodbujanju bolj uravnotežene javne razprave o družbenih ciljih in napredku. Dobra kandidata za ta namen sta ekološka in ogljikova sled, vendar imata obe omejeno področje uporabe[6]. Ker so metodologije za sestavljene indekse in podatke zdaj dovolj zrele[7], nameravajo službe Komisije v letu 2010 predstaviti pilotno različico indeksa obremenitve okolja.

This index will reflect pollution and other harm to the environment within the territory of the EU to assess the results of environmental protection efforts. A fall in the value of the index will show that progress on environmental protection is being made. It will comprise the major strands of environmental policy:

Ta indeks bo odražal onesnaženje in druge škodo okolju znotraj ozemlja EU, da bi se ocenilo rezultate naporov za varstvo okolja. Padec vednosti indeksa bo prikazoval napredek pri varstvu okolja. Zajemal bo glavne sklope okoljske politike:

- climate change and energy use

- podnebne spremembe in rabo energije,

- nature and biodiversity

- naravo in biotsko raznovrstnost,

- air pollution and health impacts

- onesnaženje zraka in vplive na zdravje,

- water use and pollution

- rabo vode in onesnaževanje,

- waste generation and use of resources

- nastajanje odpadkov in rabo virov.

The index will initially be published annually for EU and Member States with the longer term aim being – if successful – to publish it in parallel to GDP. Complementary information on sub-themes and related environmental goals set on EU and national level will be published too to allow for correct interpretation of the index. By looking at it alongside GDP and social indicators, citizens would be able to assess whether EU and national policies – together with citizens' and business efforts – deliver the level of environmental protection they expect and whether progress is achieved in a balanced way towards social, economic and environmental goals.

Indeks se bo za EU in države članice na začetku objavljal letno z dolgoročnejšim ciljem objavljanja vzporedno z BDP – če bo uspešen. Objavljene bodo tudi dodatne informacije o podtemah in povezanih okoljskih ciljih, postavljenih na ravni EU in na nacionalni ravni, da se omogoči pravilno razlago indeksa. S spremljanjem tega indeksa poleg BDP in socialnih kazalnikov bodo državljani lahko ocenili, ali politike EU in nacionalne politike – skupaj s prizadevanji državljanov in podjetij – zagotavljajo raven varovanja okolja, ki jo državljani pričakujejo, in ali je napredek dosežen na uravnotežen način na poti k družbenim, gospodarskim in okoljskim ciljem.

In addition to this comprehensive index on harm to or pressure on the environment, there is potential to develop a comprehensive indicator of environmental quality , e.g., showing numbers of European citizens living in a healthy environment. Research on this will be stepped up.

Poleg tega izčrpnega indeksa škodovanja okolju ali obremenitve okolja se kaže možnost razvoja izčrpnega kazalnika okoljske kakovosti , ki npr. prikazuje število evropskih državljanov, ki živijo v zdravem okolju. Pospešilo se bo raziskovanja na tem področju.

The Commission will also continue to work on indicators that capture the environmental impact outside the territory of the EU (e.g. indicators to monitor the Thematic Strategy on Sustainable Use of Natural Resources) and will continue to support improvement of the Ecological Footprint.

Komisija bo nadaljevala tudi z delom na kazalnikih, ki zajemajo vplive na okolje zunaj ozemlja EU (npr. kazalnike za spremljanje Tematske strategije o trajnostni rabi naravnih virov) in bo še naprej podpirala izboljšanje Ekološke sledi.

3.1.2. Quality of life and well-being

3.1.2. Kakovost življenja in blaginja

Citizens care for their quality of life and well-being. Income, public services, health, leisure, wealth, mobility and a clean environment are means to achieve and sustain those ends. Indicators on these "input" factors are therefore important for governments and the EU. In addition, social sciences are developing increasingly robust direct measurements of quality of life and well-being and these "outcome" indicators could be a useful complement to the "input" indicators.

Državljani skrbijo za kakovost svojega življenja in blaginjo. Dohodki, javne službe, zdravje, prosti čas, bogastvo, mobilnost in čisto okolje so sredstva za doseganje in ohranjanje teh ciljev. Kazalniki teh dejavnikov „vlaganja“ so zato pomembni za vlade in EU. Poleg tega družbene vede razvijajo vedno močnejše neposredne meritve kakovosti življenja in blaginje, ti kazalniki „rezultatov“ pa bi bili lahko dobro dopolnilo kazalnikom „vlaganja“.

The European Foundation for the Improvement of Living and Working Conditions is working on this issue. In addition, the Commission has launched studies on the feasibility of well-being indicators and on consumer empowerment and, with OECD, on people's perception of well-being.

S tem se ukvarja Evropska fundacija za izboljšanje življenjskih in delovnih razmer. Komisija je tudi začela s študijami o izvedljivosti kazalnikov blaginje in o zmožnostih potrošnikov ter z OECD o dojemanju blaginje pri ljudeh.

3.2. Near real-time information for decision-making

3.2. Informacije za sprejemanje odločitev skoraj v realnem času

Factors including globalisation and climate change are bringing ever faster changes to the economy, society and the environment. Policy-making requires equivalent information on all those aspects – even if this goes at the expenses of accuracy – as it has to react quickly to new developments. Currently, there are considerable differences in the timeliness of statistics in the different areas. GDP and unemployment figures are published frequently within a few weeks of the period they are assessing and this can allow near real-time decision making. By contrast, environmental and social data in many cases are too old to provide operational information e.g. on fast-changing air and water quality or work patterns. The Commission will therefore aim to increase the timeliness of environmental and social data to better inform policy-makers all across the EU.

Dejavniki, vključno z globalizacijo in podnebnimi spremembami, prinašajo vedno hitrejše spremembe gospodarstva, družbe in okolja. Oblikovanje politik zahteva enakovredne informacije o vseh teh vidikih – tudi na račun točnosti – saj mora na nove okoliščine reagirati hitro. Trenutno je v pravočasnosti statistik na različnih področjih precejšnja razlika. BDP in podatki o brezposelnosti se pogosto objavijo v nekaj tednih po času, ki ga ocenjujejo, kar lahko dopušča sprejemanje odločitev skoraj v realnem času. V nasprotju s tem so podatki o okolju in družbi v mnogih primerih prestari, da bi zagotavljali operativne informacije npr. o hitro spreminjajoči se kakovosti zraka ali vode ali o delovnih vzorcih. Komisija si bo zato prizadevala izboljšati pravočasnost okoljskih in socialnih podatkov, da bi dosegla boljšo obveščenost oblikovalcev politike po vsej EU.

3.2.1. More timely environmental indicators

3.2.1. Pravočasnejši okoljski kazalniki

Satellites, automatic measurement stations and the internet make it increasingly possible to monitor the environment in real time. The Commission is stepping up efforts to realise this potential. It has taken major steps to employ these technologies with the INSPIRE Directive[8] and GMES.[9] Last year the Commission presented the Shared Environmental Information System (SEIS), a vision of how to link traditional and novel data sources online and make them publicly available as fast as possible. A first example of such "near real-time reporting" is the ozone web of the European Environment Agency (EEA) which provides data on harmful ground-level ozone concentrations to support daily decisions such as whether to take the car or public transport, or whether or not to undertake outdoor activities.[10]

Sateliti, avtomatske merilne postaje in internet vedno bolj omogočajo spremljanje okolja v realnem času. Komisija povečuje svoja prizadevanja za uresničitev tega potenciala. Z Direktivo INSPIRE[8] in GMES[9] je naredila velike korake k uporabi teh tehnologij. Lani je predstavila Skupni okoljski informacijski sistem (SEIS), vizijo, kako povezati običajne in nove vire podatkov na spletu ter jih dati javnosti na voljo v najhitrejšem možnem času. Prvi primer takšnega „poročanja v skoraj realnem času“ je spletna stran o ozonu „Ozon web“ Evropske agencije za okolje (EEA), ki zagotavlja podatke o škodljivih prizemnih koncentracijah ozona v podporo dnevnim odločitvam, kot je ali se voziti z avtomobilom ali javnim prevozom, oziroma ali se odločiti za aktivnosti na prostem ali ne[10].

More timely data can also be produced by "now-casting", which uses statistical techniques similar to those used in forecasting to make reliable estimates. For instance, the EEA intends to produce short-term estimates of greenhouse gas emissions based on existing short-term energy statistics. Eurostat intends to extend its use of now-casting to environmental accounts.

Pravočasnejše podatke je mogoče dobiti tudi s „kratkoročnim napovedovanjem“, ki za pripravo zanesljivih ocen uporablja podobne tehnike kot je napovedovanje. EEA na primer namerava izdelati ocene s kratkoročnim napovedovanjem za izpuste toplogrednih plinov, ki temelji na obstoječih kratkoročnih energetskih statistikah. Eurostat namerava razširiti uporabo kratkoročnega napovedovanja na okoljske zadeve.

3.2.2. More timely social indicators

3.2.2. Pravočasnejši socialni kazalniki

Social data is usually collected from surveys using face-to-face interviews with large samples of respondents or using administrative data sources (e.g. tax or social security registers). The Commission, together with Member States, has been working to streamline and improve the surveys and reduce the time lag between data collection and publication. The European Labour Force Survey collects data on employment quarterly and results are published within half a year. Data on Healthy Life Years are also collected and disseminated on a yearly basis. Whenever possible and cost-effective, the timeliness of social data will be improved, e.g. with the new European System of Social Statistical Survey Modules.

Socialni podatki so večinoma zbrani v raziskavah z anketami iz oči v oči z velikimi vzorci vprašancev ali z uporabo upravnih zbirk podatkov (npr. davčnih registrov ali registrov socialnih zavarovanj). Komisija si skupaj z državami članicami prizadeva za racionalizacijo in izboljšanje anket ter zmanjšanje časovnega zamika med zbiranjem podatkov in njihovo objavo. Evropska raziskava o delovni sili zbira podatke o zaposlitvi po četrtletjih, rezultati pa so objavljeni v pol leta. Tudi podatki o letih zdravega življenja se zbirajo in razširjajo letno. Kjer je to mogoče in stroškovno učinkovito, se bo pravočasnost socialnih podatkov izboljšala, npr. z novim Evropskima sistemom socialnih statističnih modulov raziskav.

3.3. More accurate reporting on distribution and inequalities

3.3. Natančnejše poročanje o porazdelitvah in neenakostih

Social and economic cohesion are overarching objectives of the Community. The aim is to reduce disparities between regions and social groups. In addition, far-reaching reforms – such as those required to fight climate change or to promote new patterns of consumption – can only be achieved if efforts and benefits are felt to be equitably shared among countries, regions, and economic and social groups.

Socialna in ekonomska kohezija sta poglavitna cilja Skupnosti. Cilj je zmanjšanje neenakosti med regijami in družbenimi skupinami. Poleg tega je mogoče daljnosežne reforme – kot tiste, potrebne za boj proti podnebnim spremembam ali za spodbujanje novih vzorcev potrošnje – doseči le, če je občutiti, da so napori in koristi enako porazdeljeni med države, regije in ekonomske ter družbene skupine.

This is why distributional issues attract increasing attention. For example, even if the GDP per capita figure for a country is rising, the number of people living at risk of poverty may be increasing. Existing data from national accounts, e.g. on household income, or from social surveys such as EU-SILC[11], already allow for an analysis of key distributional issues. Policies affecting social cohesion need to measure disparities as well as aggregates such as GDP or GDP per capita.

Zato vprašanja o porazdelitvi privabljajo vedno več pozornosti. Na primer, tudi če BDP na prebivalca v neki državi raste, lahko število ljudi, ki živijo na robu revščine, narašča. Obstoječi podatki iz nacionalnih računov, npr. o dohodkih gospodinjstva ali iz socialnih raziskav kot je EU-SILC[11], že omogočajo analizo ključnih vprašanj glede porazdelitve. Politike, ki vplivajo na socialno kohezijo, morajo meriti tako neenakosti kot seštevke, kot je BDP ali BDP na prebivalca.

In its Renewed Social Agenda: Opportunities, Access and Solidarity ,[12] the Commission reiterated its commitment to fight poverty, social exclusion and discrimination. To foster exchange of experience between Member States, the Commission reports on a set of indicators agreed with Member States, to inform policy-makers about income disparities and particularly about the situation at the lower end of the income scale. The analysis of situations in Member States also looks at education, health, life expectancy, and various non-monetary aspects of social exclusion. Indicators of equal access to quality housing, transport and other services and infrastructure that are essential to participate fully in society – and hence to contribute to economic and social progress – are being developed.

V svoji Prenovljeni socialni agendi: Priložnosti, dostopnost in solidarnost [12], je Komisija ponovno izrazila svojo zavezanost k boju proti revščini, socialni izključenosti in diskriminaciji. Da bi spodbudila izmenjavo izkušenj med državami članicami, Komisija poroča o nizu kazalnikov, dogovorjenih z državami članicami, da bi obvestila oblikovalce politik o neenakosti dohodkov in zlasti o stanju na spodnjem delu dohodkovne lestvice. Analiza stanja v državah članicah upošteva tudi izobrazbo, zdravje, pričakovano življenjsko dobo in razne nedenarne vidike sociale izključenosti. Razvijajo se kazalniki enakega dostopa do kakovostnih stanovanj, prevoza in drugih storitev ter infrastrukture, nepogrešljive za polno sodelovanje v družbi – in s tem prispevanje k gospodarskem in družbenem napredku.

In addition, the link between social exclusion and environmental deprivation has been gaining attention. Clean air and water, unspoiled landscapes and rich biodiversity on the one hand and pollution and noise on the other are not evenly distributed. A recent study[13] contracted by the Commission confirmed that poorer people, while polluting less, live in areas of lower environmental quality, which contributes to poorer health, stress and vulnerability to natural disasters.

Poleg tega vse večjo pozornost priteguje povezava med socialno izključenostjo in okoljsko prikrajšanostjo. Čist zrak in voda, nedotaknjene pokrajine in bogata biotska raznovrstnost na eni ter onesnaženje in hrup na drugi strani nista enako porazdeljena. Nedavna študija[13], ki jo je naročila Komisija, je potrdila, da revnejši ljudje, kljub temu, da manj onesnažujejo, živijo na okoljsko manj kakovostnih območjih, kar prispeva k slabšemu zdravju, stresu in ranljivosti za naravne nesreče.

These analyses will be regularly updated and their results published.

Te analize se bodo redno posodabljale, njihovi rezultati pa bodo objavljeni.

3.4. Developing a European Sustainable Development Scoreboard

3.4. Razvijanje evropskega kazalnika trajnostnega razvoja

Sustainable Development (SD) is an overarching objective of the European Union. The aim is to continuously improve the quality of life and well-being on Earth for present and future generations. The EU Sustainable Development Indicators (SDIs)[14] have been developed together with Member States to monitor progress on the multitude of objectives of the EU Sustainable Development Strategy (SDS) and are reflected in the Commission's biennial Progress Report.

Trajnostni razvoj (SD, po angleško sustainable development ) je poglaviten cilj Evropske unije. Ta cilj je stalno izboljševanje kakovosti življenja in blaginje na Zemlji za sedanje in prihodnje generacije. Kazalniki trajnostnega razvoja (SDI)[14] EU so bili v sodelovanju z državami članicami razviti za spremljanje napredka glede številnih ciljev strategije trajnostnega razvoja EU in so prikazani v poročilu o napredku, ki ga Komisija pripravlja vsaki dve leti.

However, this monitoring tool does not fully capture recent developments in important areas that are not yet well covered by official statistics (such as sustainable production and consumption or governance issues). For several reasons, SDIs cannot always be based on the most recent data. Consequently, they may not fully reflect the efforts that businesses, civil society or governments at local or national levels are making to meet these challenges.

Vendar to orodje za spremljanje ne zajema povsem nedavnega dogajanja na pomembnih področjih, ki jih uradna statistika še ne pokriva dovolj dobro (kot so trajnostna proizvodnja in potrošnja ali vprašanja vodenja). SDI iz številnih razlogov ne morejo vedno temeljiti na najnovejših podatkih. Posledično ne odražajo nujno v celoti prizadevanj, ki jih podjetja, civilna družba ali oblasti na lokalni oziroma državni ravni vlagajo v spopadanje s temi izzivi.

A Sustainable Development Scoreboard

Kazalnik trajnostnega razvoja

To stimulate the exchange of experience between Member States and among stakeholders on policy responses, we need a more concise and up-to-date set of data. The Commission therefore explores the possibilities to develop, together with Member States, a Sustainable Development Scoreboard. The SD Scoreboard, based on the EU SDI set, could also include other quantitative and qualitative publicly available information, for instance on business and policy measures. The Commission services intend to present a pilot version of the SD scoreboard in 2009.

Za spodbujanje izmenjave izkušenj o odzivih politike med državami članicami in med zainteresiranimi stranmi potrebujemo bolj jasen in ažuren niz podatkov. Zato Komisija skupaj z državami članicami preiskuje možnosti za razvoj kazalnika trajnostnega razvoja. Kazalnik SD, ki bi temeljil na nizu SDI EU, bi lahko vključeval druge količinske javno dostopne informacije in informacije o kakovosti, na primer o poslovnih ukrepih in ukrepih politik. Službe Komisije nameravajo pilotno različico kazalnika SD predstaviti v letu 2009.

Thresholds for environmental sustainability

Meje za okoljsko trajnost

The SDS sets as a key objective to respect the limits of the planet's natural resources. These include nature's limited capacity to provide renewable resources and absorb pollutants. Scientists are seeking to identify related physical environmental threshold values and highlight the potential long-term or irreversible consequences of crossing them. For policy-making it is important to know the "danger zones" before the actual tipping points are reached, thereby identifying alert levels. The cooperation of research and official statistics will be stepped up in order to identify – and regularly update – such threshold values for key pollutants and renewable resources in order to inform policy debate and support target setting and policy assessment.

Strategija trajnostnega razvoja kot ključni cilj postavlja spoštovanje omejitev naravnih virov planeta. Sem spada omejena zmožnost narave za zagotavljanje obnovljivih virov in absorpcijo onesnaževal. Znanstveniki poskušajo določiti ustrezne fizikalne okoljske mejne vrednosti in poudariti možne dolgoročne ali nespremenljive posledice njihove prekoračitve. Za oblikovanje politik je pomembno poznavanje „nevarnih območij“ preden so dosežene prelomne točke, s čimer se določijo opozorilne ravni. Sodelovanje med raziskovanjem in uradnimi statistikami se bo okrepilo, zato da se določi – in redno posodablja – takšne mejne vrednosti ključnih onesnaževal in obnovljivih virov ter pouči razprave o politikah in podpre postavljanje ciljev ter ocenjevanje politik.

3.5. Extending National Accounts to environmental and social issues

3.5. Razširitev nacionalnih računov na okoljska in družbena vprašanja

The European System of Accounts is the main tool behind EU economic statistics as well as many economic indicators (including GDP). As a foundation for coherent policy-making, we need a data framework that consistently includes environmental and social issues along with economic ones. In its June 2006 conclusions, the European Council called on the EU and its Member States to extend the national accounts to key aspects of Sustainable Development. The national accounts will therefore be complemented with integrated environmental-economic accounting that provides data that are fully consistent. As methods are agreed and the data becomes available this will be complemented, in the longer term, with additional accounts on social aspects.

Evropski sistem računov je glavno orodje za gospodarsko statistiko EU kot tudi za mnoge gospodarske kazalnike (vključno z BDP). Kot temelj skladnega oblikovanja politik potrebujemo podatkovni okvir, ki poleg gospodarskih dosledno vključuje tudi okoljska in družbena vprašanja. Evropski svet je junija 2006 v svojih sklepnih ugotovitvah pozval EU in njene članice k razširitvi nacionalnih računov na ključne vidike trajnostnega razvoja. Nacionalni računi bodo zato dopolnjeni z enotnimi okoljsko-gospodarskimi bilancami, ki zagotavljajo polno doslednost podatkov. Ko bo dosežen dogovor o metodah in bodo podatki dostopni, se bo vse to dolgoročno dopolnilo z dodatnimi računi o družbenih vidikih.

This will provide an integrated evidence base to underpin policy analysis, helping to identify synergies and trade-offs between different policy objectives, feeding for example into ex-ante impact assessment of policy proposals. The Commission will ensure that this work is taken further in future revisions of the international System of National Accounts and the European System of Accounts. In the longer term it is expected that more integrated environmental, social and economic accounting will provide the basis for new top-level indicators. The Commission services will continue to explore – through collaboration with international organisations, dialogue with civil society and research projects – how such macro-indicators could best be designed and used.

S tem se bo priskrbelo enotno osnovo za podporo analize politik, kar bo pripomoglo k določanju sinergij in kompromisov med različnimi cilji politik, vključenih na primer v predhodne ocene učinkov predlogov politik. Komisija bo zagotovila, da se bo z nadaljnjimi pregledi Sistema nacionalnih računov in Evropskega sistema računov to delo nadaljevalo. Dolgoročno se pričakuje, da bo enotnejše okoljsko, socialno in gospodarsko računovodstvo zagotovilo temelje za nove kazalnike najvišjega reda. Službe Komisije bodo še naprej – v sodelovanju z mednarodnimi organizacijami, s pogovori s civilno družbo in z raziskovalnimi projekti – raziskovale, kako najbolje razviti in uporabiti takšne makrokazalnike.

3.5.1. Integrated environmental-economic accounting

3.5.1. Enotne okoljsko-gospodarske bilance

The Commission presented its first strategy on "green accounting" in 1994.[15] Since then Eurostat and the Member States – in collaboration with the UN and the OECD – have developed and tested accounting methods to the point where several Member States now regularly provide first sets of environmental accounts.

Komisija je svojo prvo strategijo o „ekoloških bilancah“ predstavila leta 1994[15]. Od takrat so Eurostat in države članice – v sodelovanju z ZN in OECD – razvili in preskusili računovodske metode do te mere, da nekatere države članice zdaj redno dobavljajo prve nize okoljskih računov.

Most common are the physical flow accounts on air emissions (including greenhouse gases) and on material consumption and the monetary accounts on environmental protection expenditure and taxes. As the next step, the Commission plans to extend data collection in these areas to all Member States. As a following step, physical environmental accounts could be set up for energy consumption, waste generation and treatment, and monetary accounts for environment-related subsidies. The Commission aims to have these accounts fully available for policy analysis by 2013. To ensure the accounts are comparable the Commission plans to propose a legal framework for Environmental Accounting early next year.

Najpogostejši so računi o fizičnem pretoku emisij v zrak (vključno s toplogrednimi plini) in o porabi materiala ter denarni računi o porabi in davkih za varstvo okolja. Komisija kot naslednji korak načrtuje razširitev zbiranja teh podatkov na vse države članice. Kot naslednji korak bi bili lahko vzpostavljeni fizični okoljski računi rabe energije, nastajanja in ravnanja z odpadki ter denarni računi za subvencije, povezane z okoljem. Komisija načrtuje, da bodo za analizo politik ti računi v celoti na voljo do leta 2013. V začetku naslednjega leta načrtuje predlog pravnega okvira za okoljske bilance, da bi se s tem zagotovila primerljivost teh računov.

A second strand of environmental accounts relates to natural capital, in particular changes in stocks, the most advanced of which are the accounts on forests and fisheries stocks. The Commission will contribute to the work currently undertaken at UN level.

Drugi sklop okoljskih računov se nanaša na naravni kapital, zlasti na spremembe zalog, najnaprednejši izmed teh računov pa so računi o gozdovih in staležih rib. Komisija bo prispevala k delu, ki se zdaj opravlja na ravni ZN.

A further challenge in the development of environmental accounting is complementing physical environmental accounts with monetary figures, based on valuation of the damage caused and prevented, changes in the stock of natural resources and in eco-system goods and services obtaining representative, robust, comparable and reliable monetary measures at national and EU level[16]. Monetising the costs of environmental damage and the benefits of environmental protection can help to focus policy debate to the extent that our prosperity and well-being depend on goods and services provided by nature. At micro level such valuation is conceptually sound. It is covered by several studies, notably the TEEB (The Economics of Ecosystems and Biodiversity) initiative, an ongoing wide ranging valuation of ecosystem services, jointly undertaken by UNEP, several countries and the Commission. Valuation is widely used in the Commission's impact assessments.[17] The EEA plans to continue its work on valuation of and accounting for ecosystem goods and services, with a view to establishing internationally accepted methods. However, translating such studies to macro level in a meaningful way needs further research and testing. The Commission intends to step up work on monetary valuation and the further development of conceptual frameworks.

Nadaljnji izziv pri razvoju okoljskih bilanc predstavlja dopolnjevanje fizičnih okoljskih računov z denarnimi številkami, ki temeljijo na cenitvi povzročene in preprečene škode, sprememb v zalogah naravnih virov ter ekosistemskih dobrin in storitev, za pridobitev reprezentativnih, čvrstih, primerljivih in zanesljivih denarnih meritev na nacionalni ravni in na ravni EU[16]. Določanje denarne vrednosti škode okolju in koristi varovanja okolja lahko pripomore k usmerjanju razprav o politikah na to, kako zelo sta naš razcvet in naša blaginja odvisna od dobrin in storitev, ki nam jih nudi narava. Na mikroravni je taka cenitev konceptualno smiselna. Pokriva jo več študij, zlasti pobuda TEEB ( The Economics of Ecosystems and Biodiversity – ekonomija ekosistemov in biotska raznovrstnost), trajna in obsežna cenitev ekosistemskih storitev, ki jo skupaj vodijo UNEP, več držav in Komisija. Cenitev se široko uporablja v ocenah učinkov Komisije[17]. EEA načrtuje nadaljevanje svojega dela na področju cenitve in računanja ekosistemskih dobrin in storitev z namenom vzpostavitve mednarodno sprejetih metod. Vendar so za smiseln prenos takšnih študij na makroraven potrebna nadaljnja raziskovanja in preskusi. Komisija namerava pospešiti delo na denarni cenitvi in nadaljnjem razvoju konceptualnih okvirov.

3.5.2. Increasing use of existing social indicators from national accounting

3.5.2. Povečanje rabe obstoječih socialnih kazalnikov iz nacionalnega računovodstva

The existing European System of Accounts includes already indicators that highlight socially relevant issues, such as the disposable income of households and an adjusted disposable income figure that takes into account the differences in social protection regimes of different countries. Those figures[18] reflect better what people can consume and save than GDP per capita. The Commission services intend to increase use of these indicators.

Obstoječi evropski sistem računov že zajema kazalnike, ki poudarjajo družbena vprašanja, kot sta razpoložljiv dohodek gospodinjstev in prilagojen znesek razpoložljivega dohodka, ki upošteva razlike v sistemih socialnega varstva različnih držav. Ti zneski[18] bolje kot BDP na prebivalca kažejo, koliko lahko ljudje potrošijo in privarčujejo. Službe Komisije nameravajo povečati uporabo teh kazalnikov.

4. CONCLUSION

4. SKLEPNA UGOTOVITEV

Gross Domestic Product (GDP) is a powerful and widely accepted indicator for monitoring short to medium term fluctuations in economic activity, notably in the current recession. For all of its shortcomings, it is still the best single measure of how the market economy is performing. But GDP is not meant to be an accurate gauge of longer term economic and social progress and notably the ability of a society to tackle issues such as climate change, resource efficiency or social inclusion. There is a clear case for complementing GDP with statistics covering the other economic, social and environmental issues, on which people's well-being critically depends.

Bruto domači proizvod (BDP) je močan in široko sprejet kazalnik za spremljanje kratko- do srednjeročnih nihanj v ekonomski aktivnosti, zlasti v zdajšnji recesiji. Kljub vsem pomanjkljivostim je najboljše posamezno merilo za prikazovanje delovanja gospodarstva. Vendar ni mišljeno, da bi bil BDP natančno merilo dolgoročnejšega gospodarskega in družbenega napredka ter sposobnosti družbe za spopadanje z vprašanji kot so podnebne spremembe, učinkovita raba virov in socialna vključenost. Jasno je, da je treba BDP dopolniti, saj statistike pokrivajo druga ekonomska, družbena in okoljska vprašanja, od katerih je blaginja ljudi kritično odvisna.

Work to complement GDP has been going on for years, at both national and international level. The Commission intends to step up its efforts and communication in this field. The aim is to provide indicators that do what people really want them to do, namely measure progress in delivering social, economic and environmental goals in a sustainable manner. Ultimately, national and EU policies will be judged on whether they are successful in delivering these goals and improving the well-being of Europeans. For this reason, future policies should be based on data that is rigorous, timely, publicly accepted and covers all the essential issues. The Commission intends to report on the implementation and outcomes of the actions put forward by this Communication by 2012 at the latest.

Delo na dopolnitvi BDP poteka že leta, tako na nacionalni kot na mednarodni ravni. Komisija namerava povečati svoja prizadevanja in obveščanje na tem področju. Cilj je zagotoviti kazalnike, ki dejansko delajo to, kar ljudje želijo, da bi delali, namreč, merijo napredek pri izpolnjevanju družbenih, gospodarskih in okoljskih ciljev na trajnosten način. Nenazadnje se bodo nacionalne politike in politike EU presojale glede na uspešnost pri izpolnjevanju teh ciljev in povečanja blaginje Evropejcev. Zato bi morale prihodnje politike temeljiti na podatkih, ki so natančni, pravočasni in javno sprejeti ter ki vključujejo vsa bistvena vprašanja. Komisija namerava najkasneje do leta 2012 poročati o izvajanju in rezultatih ukrepov, predloženih s tem sporočilom.

[1] GDP = private consumption + investment + government consumption + (exports " + government consumption + (exports − imports). The framework and rules on how to calculate it are set in the European System of Accounts which is broadly consistent with the UN System of National Accounts.

[1] BDP = zasebna potrošnja + investicije + javna poraba + (izvoz – uvoz). Okvir in pravila za izračun BDP so določeni v Evropskem sistemu računov, ki je na splošno skladen s Sistemom nacionalnih računov ZN.

[2] For a recent overview of limitations of GDP see Stiglitz/Sen/Fitoussi (2008) Issues Paper, Commission on the Measurement of Economic Performance and Social Progress (http://www.stiglitz-sen-fitoussi.fr/documents/Issues_paper.pdf).

[2] Za nedavni pregled omejitev BDP glej Stiglitz/Sen/Fitoussi (2008) Issues Paper, Commission on the Measurement of Economic Performance and Social Progress (http://www.stiglitz-sen-fitoussi.fr/documents/Issues_paper.pdf).

[3] www.beyond-gdp.eu

[3] www.beyond-gdp.eu

[4] COM (2008) 800 final

[4] COM(2008) 800 konč.

[5] Special Eurobarometer 295/ March 2008; a similar poll conducted in 10 countries on the five continents shows an even higher support for going beyond GDP, with three quarters agreeing.

[5] Posebni Eurobarometer 295/marec 2008; podobna raziskava, izvedena v desetih državah na petih celinah je pokazala še večjo podporo k seganju preko BDP, pri čemer so navedeno podprle tri četrtine vprašanih.

[6] The carbon footprint summarises only greenhouse gas emissions. The Ecological Footprint excludes some impacts, e.g. on water. The Commission is testing it however among other indicators to monitor the Thematic strategy on Sustainable Use of Natural Resources and the Biodiversity Action Plan.

[6] Ogljikova sled združuje samo izpuste toplogrednih plinov. Ekološka sled izključuje nekatere vplive, npr. na vodo. Vendar jo Komisija preskuša skupaj z drugimi kazalniki za spremljanje Tematske strategije o trajnostni rabi naravnih virov in Akcijskega načrta za biotsko raznovrstnost.

[7] OECD, European Commission, Joint Research Centre, Handbook on Constructing Composite Indicators: Methodology and User Guide, 2008.

[7] OECD, Evropska komisija, Skupno raziskovalno središče, Handbook on Constructing Composite Indicators: Methodology and User Guide , 2008.

[8] Directive 2007/2/EC

[8] Direktiva 2007/2/ES

[9] Global Monitoring for Environment and Security

[9] Globalno nadzorovanje okolja in varnosti ( Global Monitoring for Environment and Security ).

[10] http://www.eea.europa.eu/maps/ozone/map

[10] http://www.eea.europa.eu/maps/ozone/map

[11] EU Statistics on Income and Living Conditions

[11] Statistika Evropske unije o dohodku in življenjskih pogojih.

[12] COM (2008) 412

[12] COM(2008) 412.

[13] "Addressing the social dimensions of environmental policy", study commissioned by DG EMPL, July 2008; see http://ec.europa.eu/social/main.jsp?catId=88&langId=en&eventsId=145.

[13] „ Addressing the social dimensions of environmental policy “, študija, ki jo je naročil GD EMPL, julij 2008; glej http://ec.europa.eu/social/main.jsp?catId=88&langId=en&eventsId=145.

[14] Cf. Eurostat Statistical Book "Measuring progress towards a more sustainable Europe – 2007".

[14] Glej Eurostatovo knjigo statistik „ Measuring progress towards a more sustainable Europe – 2007 “.

[15] COM (1994) 670

[15] COM(1994) 670.

[16] The research project EXIOPOL, is working to set up an extended Input-Output framework for the estimation of environmental impacts and external costs of economic sectors, final consumption and resource use for countries in the EU; http://www.feem-project.net/exiopol/.

[16] Raziskovalni projekt EXIOPOL dela na vzpostavitvi razširjenega „input-output“ okvira za oceno okoljskih vplivov in zunanjih stroškov gospodarskih sektorjev, končne potrošnje in rabe virov za države v EU; http://www.feem-project.net/exiopol/.

[17] See also: Handbook on estimation of external costs in the transport sector, February 2008 http://ec.europa.eu/transport/sustainable/doc/2008_costs_handbook.pdf.

[17] Glej tudi priročnik za oceno zunanjih stroškov v prometnem sektorju, februar 2008 http://ec.europa.eu/transport/sustainable/doc/2008_costs_handbook.pdf.

[18] However, these indicators still do not reflect the cost of reaching that level of income e.g. in the form of foregone leisure or activities that do not really increase consumption possibilities such as preventing or repairing damage caused by economic activity.

[18] Vendar ti kazalniki še vedno ne odražajo cene doseganja te ravni dohodka npr. v obliki prostega časa, ki se mu odreče, ali dejavnosti, ki v resnici ne povečujejo možnosti potrošnje, kot je preprečevanje ali odpravljanje škode, povzročene z gospodarsko dejavnostjo.