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Recommendation 1787 (2007)
The precautionary principle and responsible risk management
1. Humanity has never before lived
in a safer and more secure environment than today. This is even
more the case in the member states of the Council of Europe where
we live much longer and healthier lives than our ancestors.
2. Paradoxically the perception of risk has increased and public
opinion in Europe wishes to further reduce industrial and technological
risks. Increasing references – including in international agreements
– to the precautionary principle or to a precautionary approach
are in line with that wish.
3. The lack of a single definition of the precautionary principle
and of the conditions for its application, however, make the concept
controversial, difficult to apply and sometimes ineffective. Therefore
an agreement should be reached that would minimise risks without
unduly restricting research and innovation.
4. The precautionary principle should allow, or in some cases
justify, the adoption of regulatory action in the absence of complete
scientific evidence about a particular risk scenario. This does
not mean that regulatory action is justified in the absence of any
scientific evidence of risks. Action should always be dependant
on reasonable, albeit incomplete, evidence of considerable potential
risks.
5. The precautionary principle should not, however, lead to the
banning of a potentially risky product or activity until their proponent
demonstrates that such product or activity poses no risks (or only
a limited risk). If this were to be the case, as some of those who
defend the principle claim, scientific research and the advancement
of science could be in serious danger. Furthermore, “in the absence
of complete scientific evidence” means that it is impossible to
prove either the risk or the lack of it.
6. The Parliamentary Assembly supports most of the criteria set
out by the European Commission in its communication of 2 February
2000 for the application of the precautionary principle: where action
is deemed necessary, measures under the precautionary principle
should be proportional to the chosen level of protection, non discriminatory
in their application, consistent with similar measures already taken,
based on an examination of the potential benefits and costs of action
or lack of action, and subject to review. The Assembly does not
approve, however, assigning responsibility for producing scientific
evidence to those against whom the principle is invoked.
7. Public authorities should respect freedom of research and
accept taking risks in a responsible way. Public opinion needs to
be informed in order to adhere to this. A culture of precaution
should be encouraged. Efforts are needed both from public authorities
in the field of education and from the scientific community and industry
in the fields of transparency and communication. Furthermore the
precautionary principle should not be used as a justification for
trade protectionism.
8. In this context the Assembly recalls its Recommendation 1762 (2006) on academic freedom and university autonomy and its Resolution 1528 (2006) on student disaffection for scientific studies. The
principle of academic freedom of researchers, scholars and teachers
should be reaffirmed. Science, today more than ever before, should
be part and parcel of general culture as it enables individuals
to maintain a sufficiently critical mind, and thereby remain impervious
to the words of false prophets. Efforts to this end are also a means of
contributing to the defence of human rights, which is the very role
of the Council of Europe.
9. The Assembly therefore calls on the Committee of Ministers
to prepare a recommendation which:
9.1. asks governments in member states of the Council of Europe
to develop policies which:
9.1.1. promote
scientific education as from primary school;
9.1.2. include ethical and precautionary thinking as an integral
part of scientific studies;
9.1.3. ensure communication on science in society;
9.1.4. foster interdisciplinarity and transdisciplinarity in
the field of research;
9.1.5. develop technology assessment (including participatory
methods);
9.1.6. regulate, whenever necessary, specific areas and sectors
of applied research;
9.1.7. review risk assessment and risk management related to
research projects;
9.1.8. communicate effectively the results of relevant risk studies;
9.2. calls on the academic world (public and private higher
education institutions) to:
9.2.1. include
ethical and precautionary thinking as an integral part of scientific
studies, in order to promote a culture of precaution among scientists;
9.2.2. foster interdisciplinarity and transdisciplinarity in
the field of research;
9.2.3. engage in dialogue with the various stakeholder groups;
9.2.4. communicate effectively the results of its activities;
9.3. calls on other research institutions and industry in the
member states to:
9.3.1. consider
possible negative outcomes and benefits of new products and activities;
9.3.2. suggest measures to prevent damages;
9.3.3. conduct risk assessment and risk-related research and
communicate its results effectively;
9.3.4. develop a culture of precaution among scientists;
9.3.5. engage in dialogue with the various stakeholder groups.
10. The Assembly also recommends that parliaments in member states:
10.1. ensure that the principles of
academic freedom of researchers, scholars and teachers and institutional
autonomy of universities are properly guaranteed legislatively or
constitutionally;
10.2. adopt, where this is not yet the case, parliamentary technology
assessment procedures and contact the European Parliamentary Technology
Assessment (EPTA) network;
10.3. set the promotion of scientific education as a priority.