The Law and Context of the Voluntary Environmental Approach Concerning Packaging and Waste Management in Spain

elni 1/2000 En i onmen al Law Ne wo k In e na ional 38 1 In oduc ion We can de ine VEAs as hose commi men s signed among human o legal people (gene ally i ms o sec o s o i ms) need ul o Adminis a i e au ho i- sa ion, o be ween a public and p i a e law people o among public people in o de o imp o e o o go deeply in o he p o ec ion o he en i onmen . By means o his de ini ion, we in oduce he h ee mos impo an exis ing VEAs (Ca a o and Lé êque, 1999) al hough we mus ad ance ha hose we conside he main ones o ou s udy a e he ag eed be ween he p i a e and Adminis a ions. Few VEAs ha e been signed in Spain. The las Eu opean Commission In en o y o En i onmen al Ag eemen s in Eu ope e eals ha jus 6 Volun a y Ag eemen s ha e been app o ed in Spain o he p o ec ion o he en i onmen , all o hem loca ed in he ield o Indus y. Abou 20% o hese ag ee- men s conce n was e managemen (Ing am, 1999). This igu e is only alid on a na ion-wide scale, as ha o icial In en o y does no ake he Ag eemen s celeb a ed on he local and egional sphe e in o conside a ion. This numbe , low om all pe spec- i es, in no such a low ciphe i we conside ha , in he Eu ope-wide scale he e a e coun ies which ind hemsel es e en mo e behind han Spain in he adop ion o Ag eemen s. Fo ins ance, Finland, wi h wo, I eland wi h one and Luxembou g wi h i e a e examples o his ac . And, wha is mo e, excep o Holland and Ge many (wi h 93 and 103 Ag ee- men s espec i ely) he es o he coun ies ha e a simila numbe o VEAs like Spain. So we ha e F ance wi h 8, G eece wi h 7 I aly wi h ele en... 2 Con ex in which Volun a y Ag eemen s Conce ning Was e a e bo n in Spain The inc ease ha he amoun o was e has expe i- enced o he las yea s in Spain is no bu a p ime example o a common phenomenon in all indus i- alised coun ies. Th ee a e he majo causes o his ∗Facul ad de De echo, Uni e si y o Se illa, Se illa, Spain spec acula ise: he popula ion g ow h, he en- dency o he u ban concen a ion o he same, and he demands imposed by he mode n consume soci- e y (Alenza, 1997). Thus, in Spain, om 1986 o 1995, an inc ease o 39% has aken place on he local p oduc ion o was e, whe eas he popula ion has only been 1, 4% up. Rega ding he was e, VEAs a e specially use ul, as hey a e p e en i e ins umen s. As an example, we can quo e he ag eemen s signed by he local au ho i ies oge he wi h me chan s and consume s in o de o educe he amoun o plas ic bags which a e usually gi en as a p esen in he shops in an indisc imina e way. These bags, made up o low densi y poly hene, a e ep esen a i e o up o a 15% o he whole plas ic p oduc ion and complica e he p ocesses o la e ea men e y much (CEIA, 1998). Some possible easons which can explain he sca ce use ha has been made o VEAs ill now in Spain may be he ollowing: • The cons i u ional doub s emaining behind he legi imacy o Volun a y Ag eemen s, o which can be added he delay in he es ablishmen o a democ a ic Spanish Cons i u ion in Spain (1978), unde s ood as a legal suppo o VEAs in Spanish legal Sys em. • The lack o clea ness abou he dis ibu ion o he powe s be ween he S a e, he Regions and he local au ho i ies o he app o al o En i- onmen al Ag eemen s, wha has highligh ed he ou s anding shyness o he Regions when implemen ing VEAs. • The igno ance o he echnical con en and he ue legal s a us o he Volun a y Ag eemen as a means o p o ec he en i onmen . Acco ding o he e minology used by he Fi h Eu opean P og am, Spanish Volun a y Ag eemen s a e included in ou g ea subsec ions: con inen al wa e esou ces, was e managemen , pollu ion and ai quali y and ozone laye deple ion (Eu opean Commission, 1996). The signing pa ies a e gene ally on he one hand, a Minis y, and on he o he , he associa ions o he V OLUNTARY E NVIRONMENTAL A GREEMENTS AND W ASTE M ANAGEMENT – EXPERIENCES FROM SPAIN AND GERMANY The Law and Con ex o he Volun a y En i onmen al App oach Conce ning Packaging and Was e Managemen in Spain An onio José Sánchez Sáez∗ En i onmen al Law Ne wo k In e na ional elni 1/2000 39 b anches o companies. So, he Minis y o En i- onmen o ha o Public Wo ks o some Au ono- mous Go e nmen , on he pa o he Adminis a- ion. On he p i a e pa , ag eemen s ha e been signed wi h he s a ione y, he ene gy, he engine and anspo sec o s. Spanish VEAs ha e no supposed un il now an al e na i e o he classic en i onmen al egula ion, bu a he hey link wi h he de elopmen o he in e na ional se o ules (p og essi e dec ease o CFCs in acco dance wi h he Mon eal P o ocol) and he na ional (Na ional Plan o Was e Dec ease) (EEA, 1998). The e o e, i is no discussed in Spanish Law he law ulness o hose ypical VEAs belonging o o he coun ies (Holland, o example) whose applica ion is imposed in exchange o he inhibi ion o he Go e nmen , which a oids gi ing no ms unila e ally in he ma e . VEAs suppose a empo a ily in e media e s ep be ween he "com- mand and con ol" classic egula ions and he ee- dom o pac s as a inal en i onmen al aim (Lascoumes, 1994). In his pape we a e going o clea he i s and hi d easons a o emen ioned, which can explain he le ha gy o he En i onmen al Ag eemen as an ins umen in Spanish En i onmen al policy, de- coding he keys ha p e en us om a mo e open app oach o he En i onmen al Ag eemen s. So, i is a ques ion o conc e ing i s cons i u ional legi i- macy and i s legal na u e. 3 Cons i u ional Rele ance o VEAs in Spain 3.1 Cons i u ional Backg ound o VEAs in Spain The subjec we now ace is no a i ial one, aking in o accoun ha he e a e se e al S a es o he Eu opean Union which a e wa ned o a possible iola ion o hei Cons i u ional p inciples by VEAs, like hose ela ed o public pa icipa ion, human igh s o a heal hy en i onmen , o he p o- hibi ion o en ail he powe s o he Adminis a ion ( o ins ance, he powe o egula ion, as a p o o- ype) in espec o indi idual con ac s (Jülich and Falk, 1999). In ou case, conside ing ha VEAs a e included wi hin he igu e o he collabo a ion ag eemen (CA om now one), and ha his, a he same ime, is a ca ego y inside he ag eemen gen e, he e is li le o oppose o he capabili y o Spanish Laws o accep pac s signed be ween he Adminis a ion and he p i a e wi h he pu pose o p o ec ing he en i- onmen (Sánchez Sáez). F om his angle, he pos- sible cons i u ional d awbacks when app o ing his ype o ag eemen s a e he same ha he con ac s o Adminis a ion, ha is o say, none. The a ibu- ion o he S a e o his con en ional capabili y is placed in he sec ion a . 149. 1. 18ª o Spanish Cons i u ion. We a e s udying he con ac ual subjec , o e which, on he one hand, he S a e has compe ence on basic legisla ion, and, on he o he , he Au ono- mous Communi ies o e he de elopmen o ha legisla ion. Thanks o his capabili y, he Ac 13/1995, 18 h May, ega ding Con ac s o Public Adminis a- ions, was passed. In his Ac we ind he essen ial key ha allows he use o VEAs. To be exac , in i s sec ion 3. 1. d), he igu e o collabo a ion ag ee- men s (CAs) be ween he Public Au ho i ies and he P i a e is desc ibed. This ule will be de eloped la e when e e ing o he legal na u e o VEAs in Spain. In addi ion o his, he sec ion 4 o his Ac g an s a la ge eedom o he Adminis a ion o acco d e e y ype o ag eemen s, pac s o con ac- ual condi ions wi h people. Clea ly, i is abou a ule insc ibed inside he Ac on Con ac s o Public Adminis a ions, which gi es alidi y o hose ag eemen s o public o p i a e na u e. Anyway, he bounda ies es ablished by he sec ion 4 o he Ac 13/1995 o he Adminis a ion a e mo e igid han hose se by he sec ion 1255 o he Ci il Code o he p i a e. O he cons i u ional suppo , his in ela ion wi h in e adminis a i e VEAs can be ound in he abili y ha Spanish Cons i u ion a ibu es o he app o al o coope a i e ag eemen s celeb a ed be ween he Au onomous Communi ies as o p o ide common se ices. This is men ioned in he sec ion 145. 2 o Spanish Cons i u ion. The e, Spanish Cons i u ion dis inguishes be ween ag eemen s o p o ide own se ices and coope a ion ag eemen s. The second a e a ypical and lend a wide ma gin o eedom o Au onomous Communi ies (Pé ez Mo eno y o os, 1981). In any case, his cons i u ional p ecep can be unde s ood as alid o he celeb a ion o ag ee- men s o coope a ion and collabo a ion among wha e e Adminis a ion. In his sense, he sec ion 6 o he Ac 30/1992, o he Legal Regime o he Public Adminis a ions and he Common Adminis a i e P ocess, de ines he legal egime o he collabo a ion in e adminis a i e ag eemen s, inside which we can include, o cou se, he in e adminis a i e VEAs, which a e no he p o o ypical ones in he ield o En i onmen al p o ec ion. The sec ion 149. 1. 18ª o Spanish Cons i u ion also g an s he S a e he exclusi e compe ence on " he bases o he legal egime o he Public Adminis a- ions... and he Common Adminis a i e P ocesses, gi ing as well o Au onomous Communi ies he allowance o de elop i s own speciali ies on he subjec ma e . Because o his i was passed in elni 1/2000 En i onmen al Law Ne wo k In e na ional 40 1992 he men ioned Ac 30/1992, 26 h No embe , ecen ly modi ied by he Ac 4/1999, 13 h Janua y. The 5 h heading o he sec ion 3 o ha Ac has egula ed wo new gene al p inciples a ec ing he egime o he ag eemen s signed by Adminis a- ions. Such p inciples ha e o be ollowed by he Adminis a ions when in e ac ing wi h he ci izens and companies. Those a e he p inciples o ans- pa ency and o he pa icipa ion o he ci izens in he public a ai s. Th ough he olun a y Ag ee- men s we can con ide in he opening o new ways o posi i a ion o he in luence o ci izens in he adminis a i e a ai s: i is impo an he "wha ", bu i is mo e in e es ing in a legal con ex he "how" aking in o accoun he pa icipa ion (Pé ez Mo eno, 1981). And gi en ha he e is no longe a mo e di ec ela ion wi h he ci izenship han ha de i ed om he con ac ual ac i i y o he Adminis a ion, hese p inciples mus be applied o VEAs. These wo p inciples a e, as we ha e ad anced, hose o anspa ency and pa icipa ion. The p inci- ple o pa icipa ion (sec ion 9. 2 o Spanish Cons i- u ion) has a clea e and di ec ela ion o VEAs, as i is in he philosophy o pa icipa ion wi h he p i- a e whe e we mus inse hem. So much i is his way ha he 5 h Communi a y Ac ion P og amme announces he p inciple o sha ed esponsibili y, one o he majo con ibu ions o he En i onmen al policy, emphasising he impo ance o he in eg a- ion o he la ge amoun o possible social agen s in he p osecu ion o en i onmen al aims, conside ing as "in e es ed agen s" no only he Public Admini- s a ion bu also associa ions o consume s, em- ploye s, ecologis o ganisa ions, housewi es, ade unions, and so on... The Recommenda ion 96/73/CE o he Eu opean Commission, 9 h Decembe 1996, ela ed o he Ag eemen s on En i onmen h ough which he Communi a y Di ec i es a e imple- men ed (DOCE L nº. 333, de 21s -12-1996), de el- ops his concep . This p inciple comes om, mo eo e , he possibil- i y ha he p i a e ha e o inish a conc e e admin- is a i e p ocess by ag eemen s, which is a chance gi en by he Ac 30/1992. As a ma e o ha , al- eady gained by he `pa icipa i e philosophy´ many impo an sec o s o he Adminis a i e ac i i ies, in Spain, such as he elabo a ion o egula ions (as s a ed in Ac 6/1997, 14 h Ap il), he economic educa i e heal h and u ban coo dina ion... i only lacked gi ing way o ci izens o achie e he mos sac ed place o he classic adminis a i e powe s: he Adminis a i e Law. Tha is he in en ion o he sec ion 88 o he Ac 30/1992, which has es ab- lished a basic egime o all he ag eemen s, pac s and acco ds ha he Adminis a ions sign wi h he p i a e, egula ing he bo de s and hei minimal con en . This basic egula ion is sa egua ded by he sec ion 149. 1. 18ª o Spanish Cons i u ion, abo e quo ed (Sánchez Sáez, 1998). The na ional egula ion on en i onmen has also a basic cha ac e , wi hou he p ejudice o he Au onomous Communi ies being able o se addi- ional p o ec i e en i onmen al ules (sec ion 149. 1. 18ª o Spanish Cons i u ion). The same p esc ip- ion mus be done abou he na ional ule on moun- ains, wood p o i s and ca le pa hs. In his ame- wo k, o ins ance, a ecen en i onmen al egula- ion has been passed allowing he celeb a ion o VEAs wi h he pu pose o en i onmen al p o ec- ion, as we will see la e on. A ypical example is he Ac 10/1998, 21s Ap il, abou Was e. In o he sec o ial cases, i is possible o ind cons i- u ional suppo o he En i onmen al Ag eemen s in he na ional basic legisla ion as a as he Gene al Planning o he Economic Ac i i y is conce ned (sec ion 149. 1. 13 h o Spanish Cons i u ion), wide se ing in which his o ically he planning ules o eo ganisa ion and mode nisa ion o indus ial ac- i i ies a e included, as o example. In hese, CAs be ween he Public Adminis a ions and de ini e indus ial sec o s delayed we e o eseen in Spain. 3.2 Cons i u ional bo de s o he signing o VEAs in Spain As he con en ional en i onmen al ac i i y o he Public Adminis a ions is conside ed in Spain as a speci ic adminis a i e ac i i y, he i s limi s ha mus be ul illed on he Public pa when subsc ib- ing a VEA, a e he gene al edges o which his has o be submi ed. Tha is o say, his mus espec he p inciple o legali y (Ca e e o Pé ez, 1970), he p inciples collec ed in he sec ion 103. 1 o Spanish Cons i u ion and he basic p inciples o he legal Regime o he Public Adminis a ion o he Ac 30/1992 (sec ion 3, plus he no el ies in oduced by Ac 4/1999, 13 h Janua y: p inciples o bona ide, legi ima e us , e iciency, se ice o he ci izens, anspa ency and pa icipa ion) which a e e oding he ancien ju isdic ions o he Adminis a ions. The p inciple o adminis a i e legali y is closely ela ed o he main commi men o Public Admini- s a ions, which is no o he han objec i ely se ing o he common good. We mus hink o e , be o e any hing else, abou he impac ha he en i on- men al adminis a ion by means o ag eemen s has p o oked in he bases o he "classic En i onmen al Law". This has been mo i a ed, among o he ea- sons, by a e y easonable eluc ance o he T ibu- nals o accep ha he sea ch o he collec i e in- e es s and he espec o he legali y cha ac e is ic o he p e ious en i onmen al policy be compa ible wi h an indi idual p o i o a conc e e i m. This p ejudices we e mos han jus i ied in some o he En i onmen al Law Ne wo k In e na ional elni 1/2000 41 ields o he adminis a i e con ac ualism in Spain, such as he u ban pac s. No wi hs anding, a ac emains unques ionable: he e olu ion o he legisla i e echnique is leading us o soo he he consequences o he p inciple o le- gali y. Nowadays we see how Ac s gi e a wide ange o ins umen s o he sea ch o he public in e es , o e coming he legisla i e ê e ie o he XIX h cen u y. Today, i is usual ha a no m be applied no only h ough he egula ions bu also h ough ag eemen s o economic and inancial ools, sanc ions... Bu i is also usual ha he Ac does no descend o a deg ee o conc e ion ha disable he chance o nego ia ion by he Admini- s a ion (Delgado Pique as, 1995). This e idence lends alidi y o no legally quali ied VEAs which could be included in he ma gin o con ac ualism le by he Ac . The de ence o common good by he Adminis a- ion (sec ion 103 o Spanish Cons i u ion) is o he o hose gene al limi s imposed o he con ac ual capabili y o Public powe s. So, in VEAs, he Ad- minis a ion can nego ia e, bu in a way ha dis- ables Public au ho i y o come o an ag eemen on en i onmen al goals awa ding he i ms and no he gene al in e es s o he ci izens. Tha leads o he ques ion o he quali y o he legal ela ions needed in En i onmen al Ag eemen s: beha iou al codes o gen lemen acco ds a e no so dange ous o public needs as legally binding con ac s. I is abou an old polemic o Adminis a i e Law, ha comes om he la e yea s o XIX h cen u y in F ance (and a - e wa ds in Spain, I aly, Ge many and o he Eu o- pean coun ies) abou he eal possibili y gi en o Public Adminis a ion o ag ee like a p i a e indi- idual. The idea o collabo a ion was hough o be pe ec ly compa ible wi h he gene al posi ion o supe io i y o Adminis a ion (Ca bonnie , 1988) because he collabo a ion way o ac does no in- ol e he pa i y o bo h sides o an ag eemen (Ma ín-Re o illo Baque , 1959). This a gumen is s ill mo e wo hy in he CAs, whe e he Public au ho i ies and he p i a e ind each o he a he same le el. Howe e , ha was he ue eason used by he F ench Conseil d´É a o deny VEAs as a legal ins umen , in he amous a ê "F iends o he Ea h"(P ieu , 1995). The sec ion 106 o Spanish Cons i u ion builds o he gene al bo de o he adminis a i e ac i i y: his has o be a legal and accu a e ac i i y in ela- ion o he scope o Adminis a ion, which in ol es he submission o he Judges and T ibunals. The con ac s mus be unde ha legal demand, no only he adminis a i e bu he p i a e Law con ac s, and also VEAs. The p oblem wi h a aching he adminis a i e ac i i y o aim i s scope is he ambi- gui y o hose objec i es, which a e no o en well de ined. This handicap is s ill s essed in VEAs, whose conc e e pu poses some imes appea no o exis , making di icul o ake legal ac ions on "de- ia ion o powe s". Mo e speci ic bo de s o con ac ual capabili y a e se in he abo e men ioned sec ion 4 Ac 13/1995, which p e en s Adminis a ion om ag eeing "when he condi ions o he acco d we e opposed o public in e es s, o legal egula ions and o good managemen p inciples". These wo i s limi s a e gene al. The good managemen p inciples demand economic e iciency, which, aken o he en i on- men al p o ec ion, equi es compe i ion and com- pe i i eness when selec ing companies o he VEA. Hue go Lo a has highligh ed some ma e ial limi s o he subsc ip ion o ag eemen s in Spain. Fi s ly, ag eemen s binding egula ion powe o Admini- s a ion we e ha dly accep ed. Gi en ha i is by means o egula ions how he gene al in e es s a e o de ed, i seems o be inapp op ia e linking a egula ion, bound o a end he gene al conce ns, o he sa is ac ion o a ew indi idual in e es s. Al- hough his ype o d awback does no specially a ec VEAs conce ning Was e (due o he ac ha hese a e mainly add essed o implemen he ules) we could a i m his possibili y when, as he au ho says, he deg ee o conc e ion o he egula ion be maximum, in o he wo ds, when we ace egula- ions ha , because o he ac hey a e add essed o a e y p ecise g oup o ci izens, condi ion, as less as possible, he gene al in e es s (Hue go Lo a, 1998). They a e also o complica e compliance he admin- is a i e ac s o judgemen o opinion encha ged o a speci ic body o he Adminis a ion, due o i s high impa iali y and echnical capabili y o dic a e hem. This is he case, o example, o he adminis- a i e sanc ions. 4 VEAs Conce ning Was e in Spain As i is al eady known, VEAs a e a a a a is in Spanish en i onmen al policy. No wi hs anding, li le by li le such a igu e is being app ecia ed, encou aged by he Communi a y di ec i es and by he inc easing in e es ha he doc ine is showing (nowadays mo e a echnical han a legal one). As a esul o his unde s anding a mosphe e, we ind a e y new egula ion co pus, ha , acco ding o us, will b ing abou a ue e olu ion ega ding he use o VEAs in Spain, abo e all on he was e manage- men amewo k. The e a e wo ecen Ac s which ha e aken in o accoun he olun a y ag eemen s o he p oduc ion, ea men and ecycling o was e in Spain: he Ac 11/1997, 24 h Ap il, on Packaging and Packaging Was e and he Ac 10/1998, 21s Ap il, o Was e. A e hem, some o he Au ono- mous Communi ies, such as Ca alonia, Basque elni 1/2000 En i onmen al Law Ne wo k In e na ional 42 Coun y and Mu cia ha e la gely used hese ins u- men s. 4.1 VEAs in he ield o Packaging and Packaging Was e in Spain Be o e coming deeply in o he egula ion o Vol- un a y Ag eemen s placed in he Ac o Packaging, i could be use ul o in o m abou a p e ious p ojec o VEA which ailed due o many easons. Like he F ench and Ge man olun a y was e plans o he i s 90s, Spain wan ed o ha e a simila olun a y was e managemen sys em. So, he P esiden o he En i onmen Spanish Employe s O ganisa ions Commission p oposed i o Spanish Wa e and En i onmen S a e Sec e a y, based on a g ea Vol- un a y Ag eemen celeb a ed be ween Minis ies, Au onomous Communi ies and Local au ho i ies and he in ol ed Spanish o ganisa ions. The wo ks we e ac ually e y ad anced when he UE Di ec i e 94/62/CE was passed, which caused he ea ly dea h o his VEA. Ne e heless, he de eloped s udies we e used o build up he s uc u es o he Was e Managemen Volun a y Sys ems, ecen ly app o ed a e he Ac o Packaging (Po eda Gómez, 1997). The packaging was e ep esen s a huge pa o he whole amoun o was e in Spain. To ge his a ge , he 5 h Communi a y Ac ion P og amme on En i- onmen and Sus ainable De elopmen app o ed he men ioned Di ec i e, and a e wa ds, Spanish Pa - liamen passed he Ac 11/1997, which was inse ed in he amewo k o basic na ional legisla ion on Planning o gene al economic ac i i y (a . 149. 1. 13ª o Spanish Cons i u ion) and on En i onmen (a . 149. 1. 23ª o Spanish Cons i u ion). Spanish Packaging Ac ies o achie e di e en aims: s imula ing p e en ion and eusing packaging and es ablishing he o eseen objec i es o ecycling and managemen . In addi ion o he obliga ion, imposed o manu ac u e s, o using packaging was e ma e ials, he Chap e IV o he Ac o de s wo di e en p ocesses o packaging was e ea - men : he i s one, which is also he gene al sys em, consis s o he pa icipa ion o all agen s in ol ed in he business chain (indus ials, impo e s, wholesale and e ail deale s) who mus collec om hei cli- en s, up o he inal consume , an amoun o money o each uni o bo led p oduc sold, e unding o all o hem he same amoun when he clien s b ing he bo les o cans back as well. The second sys em, he one we a e in e es ed in, ee he business agen s om ha obliga ion, when aking pa in an In e- g a ed Packaging and Packaging Was e Manage- men Sys em (SIG), known as well like "g een poin sys em". This also gua an ees pe iodical col- lec ing and ecycling o bo les and he achie emen o he pu poses o eusing. The au ho isa ion o hese sys ems, implemen ed h ough olun a y ag eemen s signed be ween he agen s, conce ns o Au onomous Communi ies. In compa ison wi h o he Eu opean coun ies, Spanish Law is especially linked o Eu opean Law objec i es, gi en ha i demands om Spanish socie y he educ ion o 10% o he whole packag- ing was e olume in 30 h June 2001, which does no occu in any o he Eu opean coun y. 4.2 The Legal Na u e o Packaging and Packag- ing Was e Ag eemen s in Spain In his no m he e is a gene al p inciple suppo ing he ag eemen s o he managemen and ea men o he used bo les and he managemen o he pack- aging was e. This is in acco dance wi h he 3 d Ad- di ional Disposi ion o he Ac , encou aging he use o he ag eemen s be ween he Public compe en Adminis a ions and he economic agen s wi h he in en ion o p e en ing and educing he impac on he en i onmen caused by he packaging was e h oughou he li e ime o he bo les. Bu apa om his decla a ion o in en ions, he Ac o e ells he use o speci ic olun a y En i onmen al Ag eemen s. Thus, he Ac p oposes he appea ance o he so-called SIG, as an al e na i e o he obliga- ions ha he ules ix o he p oduce s and me - chan s o bo led p oduc s. Fo his eason, a he han a comple e op ion o he no m i sel , hese sys ems a e bo n like a al e na i e wi hin he no m (and so legi ima e) which exemp hem om he gene al was e managemen egime ( his based on he obliga ion o eusing he bo les e u ned back by he use s in exchange o he paymen o a quan- i y o money pe uni ) (Rehbinde , 1997). The Ac es ablishes his way wo sys ems, mo ing i sel owa ds he ag eed solu ion, as his is mo e e icien and en i onmen al p o ec i e. The SIGs included in Spanish Ac inspi e in hose F ench plans egula ed by he F ench Dec ee 92- 377, 1s Ap il, bu di e s om hem in he ac ha whe eas in Spanish ones he collec is ca ied ou by he local En i ies, ha join he sys em by means o Volun a y Ag eemen s, in he F ench ones his is o de ed di ec ly by he Ac . This equi emen o wil ulness was demanded om he beginning by he ep esen a i es o he local En i ies (Mad id, Ba - celona and o he s, o ins ance), some hing ha , howe e , did no pleased he Employe s O ganisa- ions e y much. Unlike, in Ca alonia, hanks o he Ac 6/1993, on Was e, he Local co po a ions ex- ceeding 5.000 inhabi an s ha e o in oduce selec- i e was e se ices, which a e pe ec ly compa ible wi h he exis ence o olun a y ag eemen s in he na ional egula ions, as he Au onomous Communi- ies has he compe ence o de elop and implemen hose ules. En i onmen al Law Ne wo k In e na ional elni 1/2000 43 Bu , which is he legal na u e o hese sys ems? Acco ding o us, he e a e wo di e en sys ems: hose comple ely subsc ibed be ween he p i a e and hose o he s in which a local En i y o a Au onomous Communi y plays a ole. On he one hand, he i s sys ems (sec ion 7) a e s uc u ed as p i a e con ac s be ween he bo le companies o ade deale s o bo led i ems and o he managemen i ms o packaging in cha ge o e alua ing, ecy- cling and eusing hem (Mo e and B egha, 1999). The ac is ha hese sys ems a e de o ed o execu e a ce ain ype o public unc ions - he was e ea - men - and i is o ha eason ha he Ac demands some adminis a i e con ol o he SIG. In his case, a legal au ho isa ion is equi ed, conceded by he Au onomous Communi ies. On he o he hand, he o he gen e o ag eemen s (sec ion 9) a e ac ually ypical olun a y ag eemen s, due o he pa icipa ion o a Public Adminis a ion in hem (Local Au ho i ies, gene ally, o Au onomous Communi ies, subsidia y). He e, a g ea ma gin o eedom is gi en o he sides o he acco d. They can, o example, conc e e complemen a y inancial mechanisms, he way o ans e ing he p ope y o packaging was e om Township o he managemen company, empo al da es o collabo a ion, and so on... This eedom inse s his ype o VEAs in one o he se en classi ica ions es ablished by Bö key and Glachan . In pa icula , hey a e con ac ual nego i- a ed collec i e engagemen s, simila o he Du ch co enan s bu wi h a con en mo e public han p i a e g an ed by he adminis a i e p o ec ion o he egu- la ions, as i is he ule in he coun ies wi h a he i age om F ench Adminis a i e Law (Bö key and Glachan , 1997). This second ype o ag eemen s a e said o be CAs o encou aging p i a e ac i i ies ega ding gene al in e - es s. As a ma e o ac , hey a e public con ac s, submi ed o Adminis a i e Law. I is no he same hing o s imula e p i a e ac i i ies ega ding he common in e es han he p i a e execu ion o public powe s. Apa om he di e ence o he o mal in- s umen s used in each one (con ac s and adminis a- i e au ho isa ions, espec i ely), he o igin o he ac i i y also a ies om one o ano he sys ems: he public powe s encou aging he p i a e ac i i y o euse and ecycle he packaging was e (in he i s ones) and he p i a e i ms ag ee o do he same (in he second) (Ca illo Donai e, 1999). And, wha is mo e, hese ag eemen s in which Ad- minis a ions pa icipa es a e binding ag eemen s, gi en ha he ela ions bo n om hem a e legally egula ed: he p i a e i ms ha e o pay a ce ain amoun o money o he Adminis a ions in exchange o hei collabo a ion in he anspo o he packag- ing was e o he managemen en i y. I no , he Ad- minis a ions can collec ha quan i y, om he p i- a e side o he ag eemen , h ough a su e y o deposi ha hey a e demanded (sec ion 10. 3). Any con ac- ual b each o he olun a y ag eemen en i les he Adminis a ion o pu a ligh sanc ion o he manage- men i m (sec ion 19). Howe e , no hing is said abou con ac ual non-comple ions by he Admini- s a ion i sel . Consequen ly, we ha e o make use o hese solu ions o eseen by he Con ac Legisla ion (Ac 13/1995, al eady men ioned) in he ield o CAs. These a e olun a y ag eemen s, and he wil ulness is almos pu e and does no ind menaced by he en o cing adminis a i e powe o passing mo e ha m ul egula ions in case o non- comple ion o he ag eemen by he i ms, which supposes some- imes a dis o ing measu e (ELNI and CAMERON MAY edi o s, 1999). O he basic equi emen s mus appea in SIG o be passed, as i is usual in he sphe e o olun a y ag ee- men s: conc e ion o objec i es, clea ing he se ing o inancial mechanisms, ins umen s o check he a ge compliance, public in o ma ion o he ag eemen , and so on. As i is also usual in CAs, hese packaging and packaging was e ag eemen s a e empo ally limi ed (5 yea s). Despi e he ac ha he sec ion 8 desc ibes he con en o he ag eemen applica ion o m, he au ho isa ions a e no ansmissible o hi d pa ies. The cause o his is he disc e iona y na u e o he au ho isa ion, gi en in iew o he in ol ed i ms (in ui u pe sonae) which is an cha ac e is ic o CAs as well. Finally, he Ac es ablishes in he sec ion 18 a gene al clause encou aging he ag eemen s, whe e he use o economic ins umen s by he Adminis a ions is o e old wi h he "g een" pu poses al eady men ioned. 4.3 Volun a y SIG al eady celeb a ed in Spain Thanks, among o he causes, o he p o i s emming om he Volun a y ag eemen p ojec on Was e, which was le jus be o e he app o al o he Ac 11/1997, h ee g ea SIGs we e immedia ely bo n in Spain: ECOEMBES, ECOACERO and ECOVIDRIO. Howe e , on he 11 h June 1997, he second en i y came o an ag eemen wi h he i s one, which mean he in eg a ion o ECOACERO in ECOEMBES. See u he de ails in Appendix. La ely, one mo e SIG has been celeb a ed in Spain: SIGRE, e e ing o pha maceu ical p oduc s man- agemen . 4.4 Volun a y Ag eemen s conce ning Was e in Spain: i s legal na u e Las yea , Spanish Pa liamen passed he Ac 10/1998, 21s Ap il, on Was e, which is he na u al complemen o Ac 11/1997, al eady quo ed. Tha Ac ansposed, wi h wo yea s o delay, he Eu o- pean Di ec i e 91/156/CEE. The Ac includes all he ypes o was e p oduced in Spanish S a e, excep elni 1/2000 En i onmen al Law Ne wo k In e na ional 44 o he emissions o he a mosphe e, he e luen s on wa e and he adioac i e was e. This Ac is loca ed in he i le o he basic na ional legisla ion on En i- onmen (sec ion 149. 1. 18 Spanish Cons i u ion). I is a no el y in oduced by his Ac he incen i e o collabo a ion be ween he Adminis a ion and he i ms esponsible o in oducing p oduc s in he ma ke in ol ing he gene a ion o was e, h ough an accu a e legal amewo k ha could be imple- men ed by means o olun a y and collabo a ion En i onmen al Ag eemen s. The egula ion dis- posed by his no m is essen ially simila o ha es ablished in Ac 11/1997. The sec ions 8 and 28 add ess o he use o En i- onmen al Ag eemen s. In he sec ion 8 he Legis- la o sugges s he subsc ip ion o VEAs o he i ms dealing wi h he p oduc s ha u n in o was e in he u u e, wi h he ollowing pu poses, s a ed in he sec ion 7: using o "g een" p oduc s and packaging; aking pa in an In eg a ed Was e Managemen Sys em (SIG); accep ing a deposi e und and e u n Sys em; in o ming o hese p ocesses o Au ono- mous Communi ies Adminis a ions... The same ule was al eady egula ed h ee yea s be o e by he Ac 1/1995, 8 h Ma ch, on P o ec ion o he En i- onmen , o Au onomous Communi y o Mu cia (We mus emembe han in Spain, his kind o Adminis a ions ha e legisla i e powe s). The sec ion 28 ega ds o a new use o olun a y ag eemen s: he Au onomous Communi ies will encou age he owne s o lands pollu ed by he was e om hemsel es o om somebody else o ag ee olun a ily wi h Adminis a ions o p i a e indi- iduals o he cleaning and ecupe a ion o soils. This is a p o o ypical case-s udy o he en i on- men al use o con ac s based on he eal es a e p ope y, which in ol es a plus o obliga ions o he owne s, o ced o ake ca e o hei land as o p o ec he igh o a heal hy en i onmen , a so- called "social unc ion" o he p ope y (Ca bonnie , 1988). In bo h cases, he ag eemen s would be celeb a ed, like in he Ac o Packaging, exclusi ely be ween he p i a e o be ween he p i a e and he Public Adminis a ion. The Ac calls he i s ones " olun- a y ag eemen s", and he second ones "CAs." The eason is absolu ely logical: i has been ansla ed om he English exp ession " olun a y ag eemen " li e ally, because his e e s o a new ool, unknown un il now in he en i onmen al Spanish policy. When one o he sides is an Adminis a ion, he exp ession is "CA", a well known igu e in Spanish Adminis a i e Law om he o me ules on Ad- minis a i e Con ac s. The i s ones, au ho ised by he Au onomous Communi ies, a e p i a e con- ac s. The second ones a e public con ac s, sub- mi ed o he Ac 13/1995, ega ding he Con ac s o he Adminis a ions. As we can see, he same scheme men ioned in he Ac o Packaging is se - led. The Ac conc e es he paymen o economic sup- po s by he Public au ho i ies, ixed h ough he olun a y o CAs when cleaning he pollu ed soils. Pa icula ly, he Na ional Spanish Plan o Reco e - ing Pollu ed Soils con e es 122. 000 million pese as o he pe iod om 1995 o 2005, paid hal and hal be ween he S a e and he Au onomous Communi- ies (Po eda Gómez, 1998). The speci ic amoun o he help could be nego ia ed in he CAs, bu i will be unila e ally egula ed in he case o olun a y ag eemen s, a e he applica ion o m submi ed by he people in cha ge o he cleaning. As a compen- sa ion o hese helps, apa om he ecological bene i ob ained om his cleaning (which is o he ad an age o he collec i e owne ship) he Ac demands ha he whole capi al gains coming om public helps be sha ed wi h he Adminis a ion: he quan i y o his bene i s will be also speci ied in he CA o he conc e e ule which egula es he conces- sion o he allowance. This comes om he social unc ion o he p i a e p ope y again. The e is a di e ence, howe e , be ween he olun- a y ag eemen s egula ed in bo h Ac s. The mos impo an one is he es ablishmen , in he Ac 10/1998 o sanc ions o he p i a e which do no ul il he obliga ions de i ed om he ag eemen . I we emembe , in he Ac on Packaging, i was only he bo le and he bo led p oduc s deale s he ones obliged o subsc ibe any kind o gua an ee om which he Adminis a ion could collec in case o any con ac ual b each, also imposing ligh sanc- ions on he managemen company o he in eg a ed sys em as he esponsible o he non-comple ion o wha e e obliga ion coming om he same. In he Ac on Was e, he sanc ions a e imposed in pe so- nam, ha is on he ue p o agonis (sec ion 34. 2) who is in ol ed in a olun a y o CA, so much o he sec ion 8 as o he sec ion 28 o he Ac . These a e se ious and e y se ious sanc ions. Wi h his sanc iona y egime we clea ly see he binding o he legal obliga ions coming om he ag eemen s. The ines will be om 5.000.001 pese as o 200.000.000 pese as and disquali ica ion o he sanc ioned pe - son o keep on wo king, om one up o en yea s in he case o he e y se ious ones. Fo he se ious ones, he esponsible pe son will be ined wi h an amoun om 100.001 up o 5.000.000 pese as and disquali ica ion up o a yea . As we ha e men ioned ega ding he cons i u ional limi s o con ac ual capabili y o he Adminis a ions, he powe o sanc ion is an ex a comme cium hing, excluded om a possible olun a y o collabo a ion ag ee- men , due o he ac ha his powe is an absolu e adminis a i e au ho i y. En i onmen al Law Ne wo k In e na ional elni 1/2000 45 The Ac 3/1998, 27 h Feb ua y, on En i onmen al P o ec ion, o he Au onomous Communi y o Basque Coun y, has he i ue o ad ancing he Na ional Ac on Was e in a mon h, o eseeing he use o Volun a y Ag eemen s no only o he cleaning o pollu ed lands (sec ion 83) bu , in gen- e al, o sha ing he esponsibili y o he manage- men o hose ac i i ies isky o he en i onmen (gene a ion o packaging o packaging was e, as an example). The Basque Ac calls hem "conce s", exp ession al eady appea ed in he 60s, in he i s Spanish economic Ac s on Planning, inspi ed in hose F ench ones. This Basque no m also sanc ions he pe son who does no clean o es o e o hei o iginal s a e he spoiled lands (a . 109, k). Recen ly, in a "cu ious" empo al coincidence wi h his Basque Ac , i has been passed he Ac 3/1998 27 h Feb ua y, on In eg al In e en ion o he En i- onmen al Adminis a ion, o he Au onomous Communi y o Ca alonia. In his Ac i is gi en he i s de ini ion o gene al VEA in he his o y o Spanish en i onmen al egula ion. They a e old o be " he ag eemen s subsc ibed be ween he en i- onmen al compe en Adminis a ion and one i m o he ep esen a i es o a ce ain indus ial sec- o , by means o which bo h sides bind each o he in a olun a y way o he achie emen o quan i- ied objec i es o en i onmen al quali y." In his concep we can app ecia e he success o he spi i o acco d, which is enough o such a gene al and b ie de ini ion like his. Many hings emain clea and exp essi e abou hei legal na u e: (1) They a e only olun a y ag eemen s he ones celeb a ed be ween a public and a p i a e side, consequen ly submi ed o public egula ions) excluding he acco ds signed exclusi ely be- ween he public o be ween he p i a e. (2) These a e always binding ag eemen s. They ha e con ac ual na u e, wi h he consequences a ached o i : judicial e iew and sanc ions. (3) They mus ha e a speci ic pu pose. Taking his in o accoun , he Ca alonian Ac does no con- side he conduc codes o he gen lemen ag eemen s as VEAs. (4) The a ge s mus be p e iously ixed by egu- la ions (as usual) o by adminis a i e Law ( o ins ance, in he adminis a i e p ocesses o au ho isa ion o in he con en ional ending o he p ocess). The sec ion 8 (4 h pa ag aph) o he Ca alonian Ac allows he adop ion o wha e e echnical measu es o p e en he en i onmen om impac s de i ed o human isky ac i i ies. One o hese ag eemen s can deal wi h was e ea men , o example, one in which can be pac ed he use o he bes a ailable echnologies (BAT), he quan i ying o he was e olume pe mi ed, and so on... The VEAs es ab- lished by he Ca alonian Ac a e CAs as well, bu wi h he special ea u e o being a ue al e na i e o egula ion, o which hey can a ec o e en o e - come. They canno , e iden ly, be agains he legis- la ion, which is a gene al p inciple o Spanish Law (p inciple o legali y). 5 Liabili y and Pa icipa ion Righ s in Pack- aging and Was e VEAs in Spain We ha e al eady an icipa ed some cha ac e is ics o VEAs when alking abou hei cons i u ional limi s. Wi hin he legal sphe e o he En i onmen , he e a e some o he egula ions on VEAs, which ap- pea ed be o e he Ac s o Packaging and Was e. Fo ins ance, he egula ions abou he Na u al Pa k o Cabañe os (1995). We ha e said ha VEAs belong o a majo gen e o pac s, he so-called CAs, subsc ibed by he Public Adminis a ions and he p i a e people ( i ms, in gene al). The En i onmen al Ag eemen s a e a conc e e ype o collabo a ion ag eemen s, hose a icula ed h ough adminis a i e measu es o encou agemen o help. In hese, he Adminis a ion gi es an economic quan i y o a inancial, echnical o legal ad an age o companies aking pa in he en i onmen al sec o . These i ms engage o ac in a mo e en i onmen al e icien way. Fo example, a echnical VEA was signed in July 1999 be ween he Council o En i onmen o he Au onomous Com- muni y o Andalucía and Ace inox (a p i a e i m de o ed o he ob aining o s eel om me allic was e). In his ag eemen , he Adminis a ion ag ees o lend echnical suppo o he company ega ding i s wa e e luen s and mud il e ing. O he VEA, is implemen ed by he O de 23 d De- cembe 1994, passed by he Minis y o Indus y and Ene gy, on App o al o he Second S age o he En i onmen al Technology and Indus y Plan (PITMA II). This is a VEA in which he S a e con- e s a legal ad an age, due o he ac ha he appli- ca ion o ms o he allowances egula ed, submi - ed by i ms aking pa in a VEA in he O de , a e gi en p io i y (sec ion 9. 2, b). Collabo a ion ag eemen s a e egula ed in sec ion 3. 1, le e s c) and d) o he Ac 13/1995, 18 h May, on Con ac s o Public Adminis a ions. In le e c) he Ac es ablishes he legal ules abou in e adminis- a i e CAs, de eloped on sec ion 6 Ac 30/1992, abo e quo ed. In le e d) he Ac o de s he legal egime o CAs signed be ween he p i a e people and he Public Adminis a ions. He e, he Ac says ha i will be submi ed o he Adminis a i e Law hose CAs ha ing he objec o a con ac o public Wo ks, public se ices, public supply, public con- sul ancy, public speci ic asks, o wha e e o he pu pose de o ed o di ec ly sa is y a ce ain gene al elni 1/2000 En i onmen al Law Ne wo k In e na ional 46 in e es . Gi en ha he p o ec ion o he En i on- men is es ablished as a public powe (sec ion 45 Spanish Cons i u ion), we ha e o conclude ha Spanish VEAs a e CAs o sec ion 3. 1. d) and ha hei basic legal egime is he one o he adminis- a i e con ac s egula ed in Ac 13/1995. Tha ac in ol es he applica ion o hem o he gene al p in- ciples o adminis a i e con ac ualism: publici y, anspa ency, compe i i eness, binding ela ions be ween he pa ies, liabili y, judicial e iew by Adminis a i e T ibunals, and so on... Like p o o- ypical adminis a i e con ac s, he Adminis a ion holds powe s h oughou hei li e ime (Cabughei a, 1999). B ie ly, abou he liabili y o VEAs, we ha e only o go o sec ion 4 Ac 13/1995, abo e explained, whe e all ype o pac s, acco ds and ag eemen s a e allowed o he Adminis a ions i hey a e nei he in con adic ion o he public in e es s, o he legal egula ions no o he p inciples o good manage- men . Thus, in a VEA, in he e en o con ac ual b each (sec ion 29 Ac 29/1998, 13 h July, on Ad- minis a i e Ju isdic ion T ibunals) o w ong im- plemen a ion (sec ions 25 and 30 Ac 29/1998) on he pa o he Adminis a ion, he i ms could ake legal measu es and appeal agains hem. On he con a y, i he con ac ual non-comple ion was caused by he i ms aking pa in he ag eemen , hey could be also p osecu ed by Adminis a ions. The sec o ial egula ions on each ype o VEA could no be opposed o his essen ial p inciples o basic legisla ion (ex sec ion 149. 1. 18 Spanish Cons i u ion). Bu , wha is mo e, in case he e was no conc e e egula ions o a VEA, his one would ha e o espec he same p inciples, in acco dance wi h he o de s gi en by sec ion 4 Ac 13/1995, gi en ha he pu sui o public in e es s is an ad- minis a i e du y which can ne e be gi en up. Rega ding he legi ima ion o apply o he cou s by hi d pa ies, we ha e o ake in o conside a ion he ule o sec ion 19 Ac 29/1998, a o emen ioned, which con e s ha igh o people and legal socie- ies holding an accu a e igh o in e es , o co po- a ions, associa ions, ade unions and g oups a - ec ed o legally en i led o de end he igh s o legi ima e collec i e in e es s, and o any ci izen when legally o eseen (popula p osecu ion ac- ions). In he en i onmen al ield, his "popula ac ions" a e no egula ed (due o he sligh p o ec- ion o his igh in Spanish Cons i u ion) bu , o ins ance, do a e in he sphe e o own planning. A ew au ho s complain abou his lack (Jo dano F aga, 1995). I he adminis a i e non-comple ion p o oked measu able damages in a hi d pe son, his hi d will be able o ask o ex acon ac ual esponsibili y o he Adminis a ion. The sec ion 139 Ac 30/1992, awa ds his igh o all hose ha su e some ha m in hei p ope ies and/o igh s, p o ided ha his damage be a consequence o he usual o unusual unc ioning o he Public Se ices. Gi en ha he public and objec i e cha ac e o he adminis a i e esponsibili y in Spain (wi hou being necessa y any blame o negligence). We do no see any handicap o use his o he al e na i e, which can make up o he absence o a "popula ac ion" on En i onmen . The di icul hing, o cou se, will be o p o e in cou he exis ence o an e ec i e and economically aluable damage because o he adminis a i e ac ion, abo e all when ha damage does no a ec hi d pa ies‘ goods. Le ´s imagine ha he Town- hall collabo a ing in he Was e In eg a ed Sys em ca elessly anspo s he was e o he managemen loo . The ci izens, he p i a e owne s o goods, di ec ly a ec ed by he was e could eac . I would be s ill mo e di icul o hose people who decla e a hypo he ic ha m o hei igh o a heal hy en i on- men (sec ion 45 o Spanish Cons i u ion). Rega ding he managemen ag eemen s on Was e and Packaging signed exclusi ely be ween he p i- a e, we mus conclude, con a io sensu, ha hey a e con ac s submi ed o he p i a e Law, amed inside he eedom o ag ee ecognised o ci izens and sa egua ded by Spanish Ci il Code da ing om 1888 (sec ion 1255), wi h he bounda ies o he mo al, o he public o de and he Law. Anyway, he legal ela ionships buil up be ween he compa- nies signing ag eemen s o in eg a ed managemen on was e o packaging, a e no indi e en o he adminis a ion, which will ha e o gi e he au ho i- sa ions o ecei e communica ions and epo s om he p i a e. This way, hese ac i i ies a e included wi hin he policy o Adminis a ion, also known as o de ing ac i i y o he p i a e beha iou s (San- ama ía Pas o , 1988). The judicial e iew o hese ag eemen s, di e s in espec o he pac s celeb a ed wi h he Adminis a- ions, as i will now depends on he ype o he ag eemen ca ied ou be ween he p i a e and he egula ions applied o hese, o appeal o no o he T ibunals. As he SIG coun s wi h an adminis a i e con ol ( he au ho isa ion), i is logical o hink ha we a e be o e ue ci il con ac s (lex in e pa es), he e o e, c ea o s o au hen ic legal obliga ions o he o he pa s, which can be aken o adminis a i e cou s. The igh o appeal does no exclusi ely be- long o he signing pa s o he ag eemen , bu also (in he ield o ex acon ac ual ci il esponsibili y) o hose people who we e damaged by he con ac ual b each. One o he di e ences be ween he adminis- a i e and he ci il ex acon ac ual esponsibili y es s on he ac ha , in he second ype o esponsi- bili y, he hi d pe son has o p o e he exis ence o