欧盟包装与包装废物指令研究
摘要
过度包装造成的资源浪费、包装废物对环境造成的“白色污染”等现象引起社会各界越来越关注包装和有关包装的法律法规。我国目前还没有专门规范包装活动的法律。中国包装联合会、《包装业十一五发展规划》都明确提出要将学习、研究国外包装法律制度作为我国包装立法准备工作的重点。
欧盟包装与包装废物指令(以下称欧盟包装指令)是由欧洲议会和欧盟理事会于1994年12月颁布的。其目的是要对欧盟各成员国管理包装和包装废物的措施进行有序协调,一方面防止包装废物对环境的影响,提供高水平的环境保护；另一方面确保欧盟内部市场的有序运行,避免贸易壁垒和不正当竞争。欧盟包装指令经过15年的实践被证明在资源节约型、环境友好型等方面都是较为成功的典范,对我国包装立法有重要的理论与实践指导意义。
欧盟包装指令有正文和附录两个部分。正文又分为总则和条文两部分。总则共有39条,都是制定包装指令所遵循的基本原则。条文共有25条,包括目标、再生与回收利用、重金属含量和以国家法律实施等内容。附录里有包装物成分的基本要求等3个附件。
从欧盟环境法视角分析,可以知道：欧盟包装指令是由建立欧盟的基本法律文件所派生的二级法；是适用于欧盟所有成员国的欧盟级环境法；是对各成员国都具有约束力的硬法,但不具有全面的约束力和直接适用性,必须被转化为各成员国的国家法律才能起作用。
欧盟各成员国在2001年6月30日之前基本上都达到包装指令所规定的目标。欧盟实施包装指令,对包装废物进行管理,显而易见对环境产生了许多积极的影响,同时对经济社会也产生一定的积极影响。有关研究表明：实施包装指令比不实施包装指令只增加4%-9%的额外开支,但可增加42000多个全职工作岗位。
综合产品环境政策——从产品生命周期的各个阶段综合考虑环境问题的解决方案,是我国包装立法应从欧盟包装指令中学习的主要经验。按照生产者延伸责任原则,生产者和消费者共同造成了产品对资源的消耗和对环境的影响,生产者和消费者都是污染者。根据污染者负担原则,加上生产者最了解产品的特殊地位和产品的外部效应,生产者应该承担产品环境责任中的主要责任。生产链上的成品生产者、零配件生产者、原材料生产者、产品设计者、安装者、包装者以及流通领域的进口商、批发商、经销商、零售商等等,都应该包括在生产者的范围之内。消费者理所当然应该承担产品环境责任,可以通过绿色消费、预付费制度、押金返还制度和参与回收行动等方式来承担其产品环境责任。与生产者、消费者相比较,政府更具有公信力,同时也拥有更多的资源,政府在产品环境责任体系各相关方之间的信息交流上具有不可替代的作用；另外政府还要提供基本法律框架,所以政府是产品环境责任体系中的重要参与者。政府通过制定相关法律法规、发挥其在回收利用上的优势、推行绿色采购等方式承担产品环境责任。
我国包装立法有利于包装业健康快速发展,有利于国际贸易跨越绿色壁垒,有利于保护消费者的正当权益。我国包装废物治理可采取生命周期综合治理模式,同时结合“3R、1D”治理模式和末端治理模式。我国包装立法要鼓励和发展绿色包装。
The resource wasting of excessive packaging and the "White Pollution" of packaging waste has caused more and more public concern on packaging and packaging law. There is not a specific law to regulate packaging activities in China now. China Packaging Federation and both definitely propose that learning and studying foreign packaging laws and regulations be the key preparatory work for China packaging legislation.
Directive on Packaging and Packaging waste in EU(hereinafter referred to as "the Directive")was promulgated in December,1994 by the European Parliament and the European Council. This Directive aims to harmonize national measures concerning the management of packaging and packaging waste in order, on the one hand, to prevent any impact thereof on the environment of all Member States as well as of third countries or to reduce such impact, thus providing a high level of environmental protection, and on the other hand, to ensure the functioning of the internal market and to avoid obstacles to trade and distortion and restriction of competition within the Community. The Directive has been proved, after 15 years of practice, to be a successful paragon in building a resource-saving and environment-friendly society. It has important reference for China packaging legislation in theory and practice.
The Directive includes the text and two appendices. The text is composed of general principles and articles. There are 39 clauses in general principles while 25 in articles including such contents as Objectives, Recycling and Recovery, Concentration levels of heavy metals present in packaging and National measures, Implementation. There are 3 attachments concerning essential requirements of components in packages in the appendices.
Through analyzing the status and functions of the Directive in EU environment legislative system, it is concluded that the Directive is a second-level law derived from the basic legislative documents in establishing EU. It is an environmental law at EU level addressed to all the Member States. It is also a hard law compulsory to the Member States but not comprehensively compulsory and directly applicable. It will not work unless transformed into national measures by all the Member States.
All the member States had basically attained the goals regulated in the Directive by June 30th,2001. The implementation of the Directive has had positive impact on environment as well as economy and society. Research shows that the Directive implementation increased only 4%-9% additional expenditure compared with non-implementation, but increased 42,000 full time jobs.
The solution of integrated product environmental policy conerning comprehensive consideration of the stages in Products Life-Cycle is the key experience that we should learn from the Directive in China packaging legislation. According to the principle of extended producer responsibility, producers and consumers jointly consume resource and influence the environment, and they are both polluters. In accordance with polluter pays principle, producers know the special position and the externalities of the product. The producer should take most of environmental responsibilities. Producers include end product producers, spare parts producers, raw material producers, product designers, installers and packagers in the production chain, and also exporters, wholesalers, distributors, retailers in circulation area. Consumers take product environment responsibilities as a matter of course by means of Green Consumption. Advance Fee System, Deposit Refund System and participation of product recycling. Compared with producers and consumers, government has more credibility as well as more resources, as it plays an irreplaceable role in relative information communication of product environmental responsibility system. In addition, government should set up a basic legislative structure and is an important participant in product environmental responsibility system. Government takes product environmental responsibilities through the development of laws and regulations, its advantage in recycling and the implementation of government green purchase.
Chinese packaging legislation has benfit to healthy and rapid development of packaging, to green barrier's span of international trade, and to protection of consumer's rights and interest. The governance of packaging waste in China should adopt life-cycle integrated governance model, and combine "3R,1D" and end treatment. Green package should be encouraged and developed in package legislation.
欧盟包装与包装废物指令(以下称欧盟包装指令)是由欧洲议会和欧盟理事会于1994年12月颁布的。其目的是要对欧盟各成员国管理包装和包装废物的措施进行有序协调,一方面防止包装废物对环境的影响,提供高水平的环境保护；另一方面确保欧盟内部市场的有序运行,避免贸易壁垒和不正当竞争。欧盟包装指令经过15年的实践被证明在资源节约型、环境友好型等方面都是较为成功的典范,对我国包装立法有重要的理论与实践指导意义。
欧盟包装指令有正文和附录两个部分。正文又分为总则和条文两部分。总则共有39条,都是制定包装指令所遵循的基本原则。条文共有25条,包括目标、再生与回收利用、重金属含量和以国家法律实施等内容。附录里有包装物成分的基本要求等3个附件。
从欧盟环境法视角分析,可以知道：欧盟包装指令是由建立欧盟的基本法律文件所派生的二级法；是适用于欧盟所有成员国的欧盟级环境法；是对各成员国都具有约束力的硬法,但不具有全面的约束力和直接适用性,必须被转化为各成员国的国家法律才能起作用。
欧盟各成员国在2001年6月30日之前基本上都达到包装指令所规定的目标。欧盟实施包装指令,对包装废物进行管理,显而易见对环境产生了许多积极的影响,同时对经济社会也产生一定的积极影响。有关研究表明：实施包装指令比不实施包装指令只增加4%-9%的额外开支,但可增加42000多个全职工作岗位。
综合产品环境政策——从产品生命周期的各个阶段综合考虑环境问题的解决方案,是我国包装立法应从欧盟包装指令中学习的主要经验。按照生产者延伸责任原则,生产者和消费者共同造成了产品对资源的消耗和对环境的影响,生产者和消费者都是污染者。根据污染者负担原则,加上生产者最了解产品的特殊地位和产品的外部效应,生产者应该承担产品环境责任中的主要责任。生产链上的成品生产者、零配件生产者、原材料生产者、产品设计者、安装者、包装者以及流通领域的进口商、批发商、经销商、零售商等等,都应该包括在生产者的范围之内。消费者理所当然应该承担产品环境责任,可以通过绿色消费、预付费制度、押金返还制度和参与回收行动等方式来承担其产品环境责任。与生产者、消费者相比较,政府更具有公信力,同时也拥有更多的资源,政府在产品环境责任体系各相关方之间的信息交流上具有不可替代的作用；另外政府还要提供基本法律框架,所以政府是产品环境责任体系中的重要参与者。政府通过制定相关法律法规、发挥其在回收利用上的优势、推行绿色采购等方式承担产品环境责任。
我国包装立法有利于包装业健康快速发展,有利于国际贸易跨越绿色壁垒,有利于保护消费者的正当权益。我国包装废物治理可采取生命周期综合治理模式,同时结合“3R、1D”治理模式和末端治理模式。我国包装立法要鼓励和发展绿色包装。
The resource wasting of excessive packaging and the "White Pollution" of packaging waste has caused more and more public concern on packaging and packaging law. There is not a specific law to regulate packaging activities in China now. China Packaging Federation and
Directive on Packaging and Packaging waste in EU(hereinafter referred to as "the Directive")was promulgated in December,1994 by the European Parliament and the European Council. This Directive aims to harmonize national measures concerning the management of packaging and packaging waste in order, on the one hand, to prevent any impact thereof on the environment of all Member States as well as of third countries or to reduce such impact, thus providing a high level of environmental protection, and on the other hand, to ensure the functioning of the internal market and to avoid obstacles to trade and distortion and restriction of competition within the Community. The Directive has been proved, after 15 years of practice, to be a successful paragon in building a resource-saving and environment-friendly society. It has important reference for China packaging legislation in theory and practice.
The Directive includes the text and two appendices. The text is composed of general principles and articles. There are 39 clauses in general principles while 25 in articles including such contents as Objectives, Recycling and Recovery, Concentration levels of heavy metals present in packaging and National measures, Implementation. There are 3 attachments concerning essential requirements of components in packages in the appendices.
Through analyzing the status and functions of the Directive in EU environment legislative system, it is concluded that the Directive is a second-level law derived from the basic legislative documents in establishing EU. It is an environmental law at EU level addressed to all the Member States. It is also a hard law compulsory to the Member States but not comprehensively compulsory and directly applicable. It will not work unless transformed into national measures by all the Member States.
All the member States had basically attained the goals regulated in the Directive by June 30th,2001. The implementation of the Directive has had positive impact on environment as well as economy and society. Research shows that the Directive implementation increased only 4%-9% additional expenditure compared with non-implementation, but increased 42,000 full time jobs.
The solution of integrated product environmental policy conerning comprehensive consideration of the stages in Products Life-Cycle is the key experience that we should learn from the Directive in China packaging legislation. According to the principle of extended producer responsibility, producers and consumers jointly consume resource and influence the environment, and they are both polluters. In accordance with polluter pays principle, producers know the special position and the externalities of the product. The producer should take most of environmental responsibilities. Producers include end product producers, spare parts producers, raw material producers, product designers, installers and packagers in the production chain, and also exporters, wholesalers, distributors, retailers in circulation area. Consumers take product environment responsibilities as a matter of course by means of Green Consumption. Advance Fee System, Deposit Refund System and participation of product recycling. Compared with producers and consumers, government has more credibility as well as more resources, as it plays an irreplaceable role in relative information communication of product environmental responsibility system. In addition, government should set up a basic legislative structure and is an important participant in product environmental responsibility system. Government takes product environmental responsibilities through the development of laws and regulations, its advantage in recycling and the implementation of government green purchase.
Chinese packaging legislation has benfit to healthy and rapid development of packaging, to green barrier's span of international trade, and to protection of consumer's rights and interest. The governance of packaging waste in China should adopt life-cycle integrated governance model, and combine "3R,1D" and end treatment. Green package should be encouraged and developed in package legislation.
引文
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