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EU:汚染者負担実現に大きく前進、環境相が政治的合意

農業情報研究所(WAPIC)

03.6.18

 EUが「汚染者負担原則」の包括的実現に向けて大きく前進した。6月16日、環境相理事会がそのための環境責任指令に関する政治的合意に漕ぎつけたからである。ドイツ、オーストリア、アイルランドは合意に加わらなかったが、いくつかの残された問題を解決する作業を続け、これらの問題が解決されれば、理事会の最終結論である「共通の立場」をできるかぎり早期に採択、欧州議会の審議(第二読会)を経て最終的に採択されることになる。

 この指令は環境損傷の予防と復元を可能にするフレームワークを策定するもので、事業者は環境損傷の恐れがある場合には予防措置を取り、損傷が生じた場合には自分の負担(支払)で復元する義務を負わされる。これは関連付属書に掲げられたエネルギー産業、金属生産・加工、鉱業、化学工業、廃棄物管理などの工業活動のほか、汚染統合防止・抑制に関する1996年指令(96/61/EC)の付属書1(参照)に掲げられた広範な活動にも適用される。ただし、関連付属書に掲げられた工業活動以外の職業活動については、「保護種と自然ハビタット」の過失または故意(義務の無視)の損傷についてのみ適用される。前述の残された問題のひとつが「保護種と自然ハビタット」の定義である。

 政治的合意の柱は次のとおりである。

 ・EU各国の当局は「汚染者支払」原則に沿って必要な予防及び復元措置が事業者によって取られるように要求すべきであるが、指令が定める義務の遵守を怠った事業者が確認されないか、規程により事業者が復元費用の負担を要求されない場合には、当局自身がこれらの措置を取る。

 ・EU各国は、事業者が過失または義務の無視ではないことを立証すれば、復元費用の負担を免除することができる。ただし、この可能性は、事業者が環境損傷は国家当局により明示的に許可された排出または活動により引き起こされたものであること、及び、排出、活動、または活動の途上で一定の製品を利用する方法が当時の科学的・技術的知見に照らして環境損傷を引き起こすとは考えられなかったことを立証できる場合にのみ、適用される。

 ・EU各国は、環境責任を果たすために事業者が適切な財政保証を利用できるように、財政保証手段(環境損傷をカバーする保険)と市場を開発するのを奨励する措置を取らねばならない。欧州委員会は、指令実施から5年以内に、とりわけ環境損傷復元に関連したその有効性と既存財政保証システムの経済性(affordability)に関する報告を要求される。この報告に照らして、欧州委員会は義務的な財政保証システムの設立のための提案を行なうことができる。

 石油産業は、エリカやプレスティージなどのタンカー事故がもたらしたよう巨大な海洋環境損傷に責任を負わされることを恐れて激しいロビー活動を続けてきた。保険業界も、植物・動物相の産業活動による損傷をどのように数字で測るのか、環境問題に関する保険商品を出す用意はないと反対の圧力をかけてきた。農業界の反発も強い。しかし、欧州議会(第一読会)は既に5月14日、こうした圧力をすべて退ける指令案を採択している(EU:欧州議会、「汚染者負担原則」指令を採択、工業・農業界が反発,03.5.15)。環境相の政治的合意により、画期的指令の実現はほぼ確実になったと言えよう。

 関連資料
 Council of the EU:2517th Council meeting on Environment, Luxemburg, 13.06.2003 (provisional version)2517th Council meeting on Environment, Luxemburg, 13.06.2003 (provisional version),03.6.16
 European Commission:The Commission welcomes the agreement on environmental liability,03.6.16   
 Europe:le pollueur sera-t-il le payeur?,Libération,03.6.13

 関連情報
 法的共存ルールなしのGM作物解禁に警告:EU消費者団体,03.6.13

(注)ANNEX I

CATEGORIES OF INDUSTRIAL ACTIVITIES REFERRED TO IN ARTICLE 1
1. Installations or parts of installations used for research, development and testing of new products and processes are not covered by this Directive.
2. The threshold values given below generally refer to production capacities or outputs. Where one operator carries out several activities falling under the same subheading in the same installation or on the same site, the capacities of such activities are added together.

1. Energy industries
1.1. Combustion installations with a rated thermal input exceeding 50 MW (1)
1.2. Mineral oil and gas refineries
1.3. Coke ovens
1.4. Coal gasification and liquefaction plants

2. Production and processing of metals
2.1. Metal ore (including sulphide ore) roasting or sintering installations
2.2. Installations for the production of pig iron or steel (primary or secondary fusion) including continuous casting, with a capacity exceeding 2,5 tonnes per hour
2.3. Installations for the processing of ferrous metals:
(a) hot-rolling mills with a capacity exceeding 20 tonnes of crude steel per hour
(b) smitheries with hammers the energy of which exceeds 50 kilojoule per hammer, where the calorific power used exceeds 20 MW
(c) application of protective fused metal coats with an input exceeding 2 tonnes of crude steel per hour
2.4. Ferrous metal foundries with a production capacity exceeding 20 tonnes per day
2.5. Installations
(a) for the production of non-ferrous crude metals from ore, concentrates or secondary raw materials by metallurgical, chemical or electrolytic processes
(b) for the smelting, including the alloyage, of non-ferrous metals, including recovered products, (refining, foundry casting, etc.) with a melting capacity exceeding 4 tonnes per day for lead and cadmium or 20 tonnes per day for all other metals
2.6. Installations for surface treatment of metals and plastic materials using an electrolytic or chemical process where the volume of the treatment vats exceeds 30 m

3. Mineral industry
3.1. Installations for the production of cement clinker in rotary kilns with a production capacity exceeding 500 tonnes per day or lime in rotary kilns with a production capacity exceeding 50 tonnes per day or in other furnaces with a production capacity exceeding 50 tonnes per day
3.2. Installations for the production of asbestos and the manufacture of asbestos-based products
3.3. Installations for the manufacture of glass including glass fibre with a melting capacity exceeding 20 tonnes per day
3.4. Installations for melting mineral substances including the production of mineral fibres with a melting capacity exceeding 20 tonnes per day
3.5. Installations for the manufacture of ceramic products by firing, in particular roofing tiles, bricks, refractory bricks, tiles, stoneware or porcelain, with a production capacity exceeding 75 tonnes per day, and/or with a kiln capacity exceeding 4 m and with a setting density per kiln exceeding 300 kg/m

4. Chemical industry
Production within the meaning of the categories of activities contained in this section means the production on an industrial scale by chemical processing of substances or groups of substances listed in Sections 4.1 to 4.6
4.1. Chemical installations for the production of basic organic chemicals, such as:
(a) simple hydrocarbons (linear or cyclic, saturated or unsaturated, aliphatic or aromatic)
(b) oxygen-containing hydrocarbons such as alcohols, aldehydes, ketones, carboxylic acids, esters, acetates, ethers, peroxides, epoxy resins
(c) sulphurous hydrocarbons
(d) nitrogenous hydrocarbons such as amines, amides, nitrous compounds, nitro compounds or nitrate compounds, nitriles, cyanates, isocyanates
(e) phosphorus-containing hydrocarbons
(f) halogenic hydrocarbons
(g) organometallic compounds
(h) basic plastic materials (polymers synthetic fibres and cellulose-based fibres)
(i) synthetic rubbers
(j) dyes and pigments
(k) surface-active agents and surfactants
4.2. Chemical installations for the production of basic inorganic chemicals, such as:
(a) gases, such as ammonia, chlorine or hydrogen chloride, fluorine or hydrogen fluoride, carbon oxides, sulphur compounds, nitrogen oxides, hydrogen, sulphur dioxide, carbonyl chloride
(b) acids, such as chromic acid, hydrofluoric acid, phosphoric acid, nitric acid, hydrochloric acid, sulphuric acid, oleum, sulphurous acids
(c) bases, such as ammonium hydroxide, potassium hydroxide, sodium hydroxide
(d) salts, such as ammonium chloride, potassium chlorate, potassium carbonate, sodium carbonate, perborate, silver nitrate
(e) non-metals, metal oxides or other inorganic compounds such as calcium carbide, silicon, silicon carbide
4.3. Chemical installations for the production of phosphorous-, nitrogen- or potassium-based fertilizers (simple or compound fertilizers)
4.4. Chemical installations for the production of basic plant health products and of biocides
4.5. Installations using a chemical or biological process for the production of basic pharmaceutical products
4.6. Chemical installations for the production of explosives

5. Waste management
Without prejudice of Article 11 of Directive 75/442/EEC or Article 3 of Council Directive 91/689/EEC of 12 December 1991 on hazardous waste (2):
5.1. Installations for the disposal or recovery of hazardous waste as defined in the list referred to in Article 1 (4) of Directive 91/689/EEC, as defined in Annexes II A and II B (operations R1, R5, R6, R8 and R9) to Directive 75/442/EEC and in Council Directive 75/439/EEC of 16 June 1975 on the disposal of waste oils (3), with a capacity exceeding 10 tonnes per day
5.2. Installations for the incineration of municipal waste as defined in Council Directive 89/369/EEC of 8 June 1989 on the prevention of air pollution from new municipal waste incineration plants (4) and Council Directive 89/429/EEC of 21 June 1989 on the reduction of air pollution from existing municipal waste-incineration plants (5) with a capacity exceeding 3 tonnes per hour
5.3. Installations for the disposal of non-hazardous waste as defined in Annex II A to Directive 75/442/EEC under headings D8 and D9, with a capacity exceeding 50 tonnes per day
5.4. Landfills receiving more than 10 tonnes per day or with a total capacity exceeding 25 000 tonnes, excluding landfills of inert waste

6. Other activities
6.1. Industrial plants for the production of:
(a) pulp from timber or other fibrous materials
(b) paper and board with a production capacity exceeding 20 tonnes per day
6.2. Plants for the pre-treatment (operations such as washing, bleaching, mercerization) or dyeing of fibres or textiles where the treatment capacity exceeds 10 tonnes per day
6.3. Plants for the tanning of hides and skins where the treatment capacity exceeds 12 tonnes of finished products per day
6.4. (a) Slaughterhouses with a carcase production capacity greater than 50 tonnes per day
(b) Treatment and processing intended for the production of food products from:
- animal raw materials (other than milk) with a finished product production capacity greater than 75 tonnes per day
- vegetable raw materials with a finished product production capacity greater than 300 tonnes per day (average value on a quarterly basis)
(c) Treatment and processing of milk, the quantity of milk received being greater than 200 tonnes per day (average value on an annual basis)
6.5. Installations for the disposal or recycling of animal carcases and animal waste with a treatment capacity exceeding 10 tonnes per day
6.6. Installations for the intensive rearing of poultry or pigs with more than:
(a) 40 000 places for poultry
(b) 2 000 places for production pigs (over 30 kg), or
(c) 750 places for sows
6.7. Installations for the surface treatment of substances, objects or products using organic solvents, in particular for dressing, printing, coating, degreasing, waterproofing, sizing, painting, cleaning or impregnating, with a consumption capacity of more than 150 kg per hour or more than 200 tonnes per year
6.8. Installations for the production of carbon (hard-burnt coal) or electrographite by means of incineration or graphitization
(1) The material requirements of Directive 88/609/EEC for existing installations still apply until 31 December 2003.
(2) OJ No L 377, 31. 12. 1991, p. 20. Directive as amended by Directive 94/31/EC (OJ No L 168, 2. 7. 1994, p. 28).
(3) Oj No L 194, 25. 7. 1975, p. 23. Directive as last amended by Directive 91/692/EEC (OJ No L 377, 31. 12. 1991, p. 48).
(4) OJ No L 163, 14. 6. 1989, p. 32.
(5) OJ No L 203, 15. 7. 1989, p. 50.