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A global review of implementation of the United Nations Guidelines for Consumer Protection

Tracking Progress:Implementing sustainableconsumption policies

2nd Edition

Tracking Progress:Implementingsustainable

consumptionpolicies

A global review of implementation of the

United Nations Guidelines for Consumer Protection

(Section G: Promotion of Sustainable Consumption)

Tracking progress: Implementing sustainable consumption policies

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Acknowledgments

This report was written by Matthew Bentleyfor UNEP Division of Technology, Industryand Economics (DTIE) and ConsumersInternational (CI), under the guidance of Basde Leeuw, Co-ordinator, SustainableConsumption Programme, UNEP DTIE and Anna Fielder, Director, Office forDeveloped and Transition Economies, CI.

Consumers International project researchteam: Matthew Bentley (UNEP/CI Project Co-ordinator), Nessie Golakai (Regional Office forAfrica), Rajes Kanniah (Regional Office forAsia Pacific), Stefan Larenas (Regional Officefor Latin America and the Carribean), BjarnePedersen (Office for Developed and TransitionEconomies).

UNEP and CI would like to thank all thosegovernments and consumer organisations thatparticipated in the study. The followingcountries kindly provided us with material fora case study: Australia, Brazil, Chile, China,Germany, Japan, Mauritius and Senegal.

The author would like to thank Susan Kikweand Emily Armistead, for providing anessential link to UNEP Paris and CI Londonoffices while he was based in Sydney,Australia.

Edited by Andrew McIlwraith

Designed and produced by Steve Paveley

Note on 2004 Edition: The report has beenupdated to include survey responses receivedafter the March 2002 deadline from Estonia,Finland and India. No other majoramendments have been made to this newedition. The Foreword from the first editionhas not been updated. Louise Sylvan wasreplaced as President of CI by MarilenaLazzarini in October 2003.

© UNEP and Consumers International, May 2002

This publication may be reproduced in wholeor in part and in any form for educational ornon-profit purposes without specialpermission from the copyright holders,provided acknowledgement of the source ismade. UNEP and Consumers Internationalwould appreciate receiving a copy of anypublication that uses this publication as asource.

No use of this publication may be made forresale or for any other commercial purposewhatsoever without prior permission inwriting from UNEP and ConsumersInternational.

Second edition 2004

The designations employed and thepresentation of the material in this publicationdo not imply the expression of any opinionwhatsoever on the part of the United NationsEnvironment Programme concerning the legalstatus of any country, territory, city or area orof its authorities, or concerning delimitation ofits frontiers or boundaries. Moreover, theviews expressed do not necessarily representthe decision or the stated policy of the UnitedNations Environment Programme, nor doesciting of trade names or commercial processesconstitute endorsement.

UNITED NATIONS PUBLICATION

ISBN: 92-807-2478-9

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Foreword

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There is wide global recognition thatunsustainable patterns of consumption haveserious social and environmental impacts.Moreover, an emerging conclusion of thepreparations for the World Summit onSustainable Development (WSSD), includinga series of regional round tables organisedby UNEP, is that there is still an importantlack of understanding about the potentialcontribution of sustainable consumptionpolicies to eradicating poverty, while at thesame time preserving the environment.

‘Changing consumption patterns’, as identifiedby Chapter 4 of Agenda 21, remains achallenging, yet significant component of thedrive to achieve sustainable development.

Protecting consumers from impendingenvironmental and social catastrophes is anintegral responsibility of governments allaround the world. Ever since the expansion ofthe United Nations Guidelines for ConsumerProtection in 1999 to include elements onsustainable consumption, governments havehad at their disposal a valuable framework ofpolicies designed to reorient consumptionpatterns towards sustainability.

Consuming efficiently – using fewer resourcesand causing less pollution – to achieve a better quality of life for all should be a non-controversial issue. However, insufficientknowledge sometimes leads to a hesitant or slow uptake of the required policies. A significant sign of hope is uncovered by the first global review of the status ofimplementation of the UN Guidelinesconducted by UNEP and CI. Theoverwhelming response to the survey from

over 50 governments, including more than halffrom developing countries and countries witheconomies in transition, indicates their supportfor the expanded Guidelines and outlines theircurrent progress and needs for furthering theadoption process.

The advancement and promotion of theGuidelines and sustainable consumption andproduction are considered a key theme for this year’s World Summit on SustainableDevelopment, and Tracking Progress is a pioneering, crucial review in theimplementation of such policies. It highlightsboth good practices and the need for a time-bound global framework programme aimed at comprehensive and integratedimplementation of the Guidelines.

We call on all governments to adhere to themessages in this report and push ahead with implementation of the sustainableconsumption section of the UN Guidelines forConsumer Protection. We trust that TrackingProgress will also act as the benchmark for asuccessful training and capacity-buildingprogramme in the years to come.

Louise Sylvan, CI President

Klaus Töpfer, UNEP Executive Director

Foreword


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Foreword 3

Executive Summary 6

1 Introduction 8Achieving sustainable consumption 8United Nations Guidelines for Consumer Protection 11The project 12

2 Research methodology 14Questionnaire 14Follow-up interviews 17

3 Survey findings 18 Response and participation 18Governments’ views 19Progress of implementation 21

4 National case studies 30Overview 30Australia 30Brazil 37Chile 39China 41Germany 44Japan 51Mauritius 54Senegal 56

5 Conclusions 58Awareness of Guidelines 58Modification of Guidelines 59Monitoring implementation 59Consumer information 60Support for developing countries 61

Appendix 1: United Nations Guidelines for 64Consumer Protection

Appendix 2: survey questionnaire 66

Contents

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Contents

Appendix 3: survey responses 72

Appendix 4: resources 74

About the project partners 76

Abbreviations and acronyms used in this reportCI Consumers InternationalCSD Commission for Sustainable DevelopmentDTIE Division of Technology, Industry and Economics (UNEP)ECOSOC Economic and Social Council (UN)ODTE Office for Developed and Transition Economies (CI)OECD Organisation for Economic Co-operation and DevelopmentPREPCOM Preparatory Committee meeting for WSSDROAF Regional Office for Africa (CI)ROAP Regional Office for Asia and the Pacific (CI)ROLAC Regional Office for Latin America and the Caribbean (CI)SC sustainable consumptionUN United NationsUNCED United Nations Conference on Environment and DevelopmentUNCTAD United Nations Conference on Trade and DevelopmentUNEP United Nations Environment ProgrammeWEEE Waste from Electrical and Electronic Equipment (European

Union Directive)WSSD World Summit on Sustainable Development


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Three years have passed since the UnitedNations Guidelines for Consumer Protectionwere expanded in 1999 to include newelements on Sustainable Consumption(Section G). They represent a framework forgovernments to use in formulating andstrengthening consumer protection policiesand legislation. The Guidelines encompasssuch issues as providing information,conducting consumer research, testingproducts, promoting recycling andsustainable government practices,encouraging life cycle thinking and eco-products, and strengthening regulatorymechanisms and adopting economicmeasures.

UNEP and CI have conducted the first globalgovernmental study of the status ofimplementation of the sustainableconsumption section of the Guidelines. It hasrevealed a clear and strong interest bygovernments everywhere in implementingthese Guidelines. Policy makers all over theworld are aware of the urgency of protectingtheir citizens from environmental and socialdisasters by inspiring changes in consumptionand production patterns.

However, of the 53 governments whose surveyresponses feature in the study, more than athird were not actually aware of the Guidelinesbefore they received the global survey.

Altogether, UNEP and CI approached andactively followed up almost 150 governments,receiving a positive response from 90,including those that participated in the study.A vast number of requests were fielded forinformation about the Guidelines and the topic

of sustainable consumption. This shows a clearneed for a better and more systematicapproach to spreading knowledge andunderstanding of the Guidelines.

The status of implementation of the specificelements of the Guidelines varies widely. Forexample, three-quarters of governmentssurveyed said that they had started toimplement policies in line with the need forsustainable government practices, but just overhalf said that they had promoted research onconsumer behaviour to identify ways to makeconsumption patterns more sustainable.

Governments are calling for training and otheropportunities to learn from the internationalcommunity, including consumer organisations,NGOs and other interested parties.

There is an overwhelmingly positive opinionof the Guidelines – almost 80% of countriessurveyed said that the Guidelines are usefulfor policy making. However, a third of thegovernments surveyed believe that Section Gof the Guidelines need to be modified, inmany cases because certain guidelines are feltto lack clarity and need better explanation.

Measuring progress is another area wherethere is room for improvement. Half thegovernments surveyed do not have designatedrepresentatives in charge of implementing, ormonitoring compliance with, the Guidelines.

One of the clear positive messages from thestudy is the large number of governments thathave raised consumer awareness aboutsustainable consumption issues. Eight in tengovernments have promoted such practices in

Executive summary

Executive summary

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recent years and many others have devisedcampaigns for the future. The most commonactivities revolve around disseminatinginformation about saving energy and waterresources, or protecting the environment byrecycling or buying recycled products.However, this is by no means all that should bedone. Governments, especially those in non-OECD countries, could learn from examples inother countries and extend their campaignsbeyond the traditional resource-saving sphere.

The eight national case studies included in thisreport demonstrate a host of good practices forcountries intent on starting or furtheringsustainable consumption policy making (seeChapter 4, page 30).

Many of the governments that responded tothe survey expressed the need for support indesigning national policies that follow theframework of the Guidelines. However, manysuch polices are already available and havebeen enacted by various authorities.Enthusiasm and good practices should beshared so that global policy implementation inthis field can be boosted without re-inventingthe wheel.

Summary of recommendations

• Governments should initiate a five-yearglobal framework programme aimed atcomprehensive and integratedimplementation of the guidelines atnational, regional and international level.Such a programme could be launched at theWSSD.

• Governments should develop a concreteplan of action for implementation of theGuidelines including timelines andmeasurable targets.

• Special attention should be focused on thefollowing policy areas: publicly-availableinformation on measuring progress;research on consumer behaviour;environmental product testing; regulatorymechanisms, including economicinstruments; sustainable governmentpractices, including sustainableprocurement; life cycle design of productsand services; and recycling programmes.

• Governments should carry out their ownmonitoring activities and nominate adepartment or organisation to beresponsible for the compliance-monitoringrole.

• The international community should setmeasurable targets and progress should betracked. Every two years a global reviewshould be conducted by impartial bodies toreview progress towards such targets.

• Further research must be conducted thatinvestigates more fully the level to whichinitiatives or legislation have beenimplemented in support of each of thesustainable consumption elements of theGuidelines. The information should bemade publicly available.

• Governments, supported by internationalorganisations and consumer organisations,should raise awareness of the existence ofthe Guidelines within their own nationalpolitical structures.

• International organisations, such as UNEPand the OECD, should promote good-quality and reliable information aboutsustainable consumption to governments,business, non-governmental organisationsand the public.

• Governments should share experiences withthe international community on progresstowards implementing the Guidelines.Industrialised countries should supportdeveloping countries with direct knowledgetransfer. Training and information-sharingworkshops should be conducted in allworld regions.

• International organisations and consumerorganisations should improve their outreachto support efforts to implement theGuidelines by raising awareness, providinginformation and monitoring progress.Promotional materials, good-practice casestudies, resource websites and toolkits thatclearly explain the key strategic objectivesshould be made available. The Guidelinesshould be translated into all official UNlanguages.


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1 Introduction

Achieving sustainable consumption

World consumption expenditures, private andpublic, have expanded at an unprecedentedpace, doubling in real terms in 25 years toreach $US24 trillion in 1998. This expansionhas propelled considerable advances inhuman development1. Unfortunately,however, the negative impacts have beensimilarly resounding. The problems includeunequal distribution of consumption,environmental damage (deforestation, soildegradation, desertification, water stress andloss of biodiversity) and social impacts thatdeepen inequalities and social exclusion.

Sustainable consumption and production firstsecured international prominence at the RioEarth Summit (UNCED) in 1992.

At the 1992 United Nations Conference on theEnvironment and Development (UNCED) inRio de Janeiro, the Agenda 21 action plan wasadopted. Agenda 21 is a collection of detailedgoals and policies aimed at makingsustainable development a reality byeliminating poverty and by eradicating theserious threats to our global and localenvironment2. Chapter 4 of thisgroundbreaking document, ‘Changingconsumption patterns’, highlights the need forreorienting consumption patterns towardssustainability, and presents strategies forachieving the goals.

‘Ever since the international communityendorsed the concept of sustainable consumptionit has led to an impressive amount of activities byinternational governmental organisations,governments, business decision-makers, non-governmental organisations and individualpeople themselves. However, governments shouldrealise that there might be a firmer role for themto play. Financial and legal regulations shouldbetter reflect today’s concerns for sustainability.Designing in “sustainability” in a broadspectrum of policies, including land-useplanning, transport and energy policies willfacilitate individual consumers to take theenvironment into account in their dailydecisions.’Bas de Leeuw Co-ordinator, Sustainable ConsumptionProgramme, UNEP DTIE

Chapter 4 of Agenda 21 recognised that ‘themajor cause of the continued deterioration ofthe global environment is the unsustainablepattern of consumption and production,particularly in industrialised countries’ andcalled for action to promote patterns ofconsumption and production that reduceenvironmental stress and will meet the basicneeds of humanity’3.

Chapter 4 of Agenda 21 encourages theimplementation of national policies, includingthe utilisation of economic instruments, suchas taxes and deposit/refund systems that caninfluence consumer behaviour towardssustainability. Government procurement isoutlined as a critical requirement, as was theneed for environmental labelling schemes4.

Introduction

In 1995, the United Nations Commission onSustainable Development officially adoptedthe working definition of sustainableconsumption as: ‘The use of services andrelated products which respond to basic needsand bring a better quality of life whileminimising the use of natural resources andtoxic materials as well as the emissions ofwaste and pollutants over the life cycle so asnot to jeopardise the needs of futuregenerations.’5

‘Sustainable consumption is not aboutconsuming less, it is about consumingdifferently, consuming efficiently, and having animproved quality of life. It also means sharingbetween the rich and the poor.’6

Jacqueline Aloisi de Larderel UNEP Assistant Executive Director

Other important elements that need to beaddressed through sustainable consumptioninclude decoupling economic growth fromenvironmental degradation and the theme of‘common but differentiated responsibility’.

In Response to Chapter 4 and the increasedconsumer awareness and interest insustainability worldwide, the internationalconsumer movement led the drive toincorporate environmental criteria into theUnited Nations Guidelines for ConsumerProtection. In 1993, Consumers Internationalorganised a conference about sustainableconsumption, ‘Beyond the year 2000: Thetransition to sustainable consumption’. As aresult of intensive lobbying, in 1995, theUnited Nations Economic and Social Council(ECOSOC) agreed to request the Secretary-General to expand the Guidelines to includeelements on sustainable consumption.

‘Consumers are increasingly interested in theworld that lies behind the product they buy.Apart from price and quality, they want to knowhow, where and whom has produced the product.This increasing awareness about environmentaland social issues is a sign of hope. Governmentsand industry must build on that.’Klaus Töpfer UNEP Executive Director

‘Even though the concept of sustainableconsumption may sound new, the concept issomething that has been practiced by ourancestors. Traditionally our society and thepeople lived and used their natural resourcessustainably. They were healthy because theyconsumed only what was required for living.With the current situation it is different becausepeople become so dependant on imported goodsand they produce for commercial trade unlike thetraditional practices and consumption patterns.It is therefore important that traditionalknowledge on consumption should be encouragedbecause it will assist to maintain sustainablepatterns of consumption.’Ernest Bani Director, Environment Unit, Vanuatu

‘Responsible consumption is a logicaldevelopment of the concept of sustainableconsumption, as responsible consumers demandthat their rights be respected, including the rightto “consume better”, that is, in a more ethical,ecological or socially-responsible way.’Martin FridSwedish Consumer Coalition

CI and UNEP promoting sustainableconsumption

Over the years most of the work onsustainable consumption has shifted fromdiscussing concepts and strategies to definingpolicy options7.

The UN Commission on SustainableDevelopment (CSD) co-ordinated manyinternational sustainable consumptionactivities in the mid to late 1990s after settingup an International Work Programme onChanging Consumption and ProductionPatterns (IWPCCPP) in 1995. However, bothCI and UNEP have become integral in theprocess of promoting and advancingsustainable consumption thinking and policy-making efforts8.

CI has been responsible for a number ofsustainable consumption campaigns since theadoption of Agenda 21. For example, Greeningconsumer choice? was published in 1995 toexamine environmental labels, and CI’sRegional Office for Asia and the Pacific

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conducted a nine-country examination ofhousehold consumption patterns9 in theregion, and also distributed a series of casestudies, ‘A matter of living on earth’. Otherrelevant work included the report ‘Meetingneeds, changing lifestyles’, issued at the WorldConsumer Rights Day on March 15, 1997, andthe impressive collection of books andcampaign materials as support to consumerorganisations in promoting sustainableconsumption on green testing, green claimsand green guidance10.

CI was instrumental in having the UNGuidelines for Consumer Protection expandedto include sustainable consumption.

In 1999, UNEP’s Sustainable ConsumptionProgramme was launched. Its mission was tobetter understand the forces that driveconsumption and use the findings to inspiregovernments, businesses and non-governmental organisations to take action.Consumers need information, products,services, price incentives, legal frameworksand infrastructure in order to be inspired tochange their consumption choices. Creatingthe conditions for consumers to consumemore efficiently (using fewer natural resourcesand causing less pollution and negative socialconsequences) has therefore become the mainfocus of work for UNEP’s SC Programme.

A particular emphasis is given to theopportunities and needs of developingcountries and countries with economies intransition in this area. More efficientconsumption and production patterns will –apart from the environmental gains – also bebeneficial for countries with scarce resources,as it can provide quality of life for all,foremost those most in need, and therebycontribute to the eradication of poverty.

The increasing awareness of sustainabilityamong consumers worldwide can potentiallycreate business opportunities in thosecountries, both in their domestic and theirexport markets, which will also strengthentheir economic development. However, a lackof knowledge and skills sometimes leads to ahesitant or slow uptake of the requiredpolicies. This is why UNEP’s SC Programme

includes an important ‘capacity-building’component, focusing on Africa, Asia, LatinAmerica and Eastern Europe.

UNEP’s SC Programme includes activitiesaddressing such sectors as advertising andyouth, and core themes such as life-cyclethinking, sustainable product and servicedesign and a process of regional roundtables11. Research was conducted on theconsumption patterns of global consumers12 –a group of consumers with similar tastes andhabits, on youth lifestyles and on indicatorsfor sustainable consumption13.

The need for user-friendly, transparent andreliable information about environmentalaspects of products and services is increasing,as more and more people are interested in the‘world behind’ their consumption patterns. Inan effort to meet this need, UNEP and theSociety of Environmental Toxicology andChemistry (SETAC) have joined forces tofacilitate the use of life cycle assessment(LCA) and to promote life cycle managementfor both business and governments14.

Sustainable consumption and cleanerproduction are two sides of the samesustainability coin. UNEP is working on bothsides in an integrated manner. The twoapproaches meet at the level of the product.Tools such as eco-design, dematerialisationand the promotion of services and productservice systems (PSS) are being investigatedand promoted15. UNEP is also amongst thepromoters of environmentally and sociallyresponsible (green) procurement. It isparticularly keen on promoting informationexchange on sometimes very variedexperiences, with a special focus on the needsof governments and business in developingcountries16.

With this portfolio and outputs, UNEP’srelatively young SC Programme has quicklyachieved the status of one of the leaders insetting the international agenda on sustainableconsumption and in promoting itsimplementation.

Introduction

‘UNEP is playing a strategic role in sustainingthe debate on changing consumption andproduction patterns. UNEP is the organisationthat is giving credibility to the UN and theinternational community in following up onChapter 4 of Agenda 21. That’s why UNEPdeserves and requires support from all thoseworking towards sustainable consumption andproduction.’Eva CharkiewiczTools for Transition, The Netherlands

United Nations Guidelines for Consumer Protection

In 1985, the United Nations General Assemblyadopted, by consensus, the United NationsGuidelines for Consumer Protection in itsresolution 39/85. The Guidelines are intendedfor use by governments in developing andstrengthening national consumer protectionlegislation and regulation. They are not formalobligations or even recommendations, butrather a set of elements governments can draw upon in developing such policies. (See Appendix 1, page 64, for the full text of Section G of the Guidelines)

The UN Guidelines for Consumer Protectionremain an extremely valuable tool in nationalpolicy development, and in the design andimplementation of consumer protectionlegislation. The Guidelines represent adynamic process, adapting to changingconditions (for example, the recent inclusion ofthe sustainable consumption elements)17.

Expanding the Guidelines to include elements on sustainable consumption

In 1999 the UN Guidelines for ConsumerProtection were expanded to include elementson sustainable consumption. Based on the textdrafted by the UN Inter-Regional ReportGroup Meeting on Consumer Protection andSustainable Consumption: New Guidelines forthe Global Consumer (Sao Paulo, January1998), and on informal intergovernmentalconsultations held at the UN in late 1998, CSD-7 adopted a revised text for the Guidelines.That text was endorsed by the Economic andSocial Council (ECOSOC) in July 1999 and

adopted by the General Assembly in late 1999(Decision 54/449). At the February 1999meeting, CI ROLAC’s Stefan Larenas calledthe adoption of the new Guidelines a ‘crucialnext step’ in achieving the goals of sustainabledevelopment as agreed upon in Rio in 1992.

CI played an integral role in the preparatorywork for the extension of the Guidelines.Based on the UN ECOSOC resolution 1997/53,which was sponsored by Brazil and Chile andco-sponsored by 15 member states, CIprepared draft inputs for the new Guidelines,incorporating elements of sustainableconsumption18. Various stakeholders,including the OECD and UNEP, commentedon the proposed texts.

The extension of the Guidelines to includesustainable consumption provided animportant opportunity both to updateconsumer protection policies to includeenvironmental protection and sustainabledevelopment, and to strengthen the linkagebetween consumer interests and sustainableconsumption, thereby stimulating nationalpolicy making to promote more sustainableconsumption.

In the past, extensive environmental protectionand sustainability activities had focused onmaking production processes cleaner andsafer, whereas since the early 90’s, it wasincreasingly considered as equally importantto promote the demand side and to promotemore sustainable consumption patterns. Thehope was that the revised Guidelines wouldstimulate governments, businesses andconsumer organisations and, ultimately,individual consumers, to consider theenvironmental impacts of the production,marketing, consumption and disposal of goods and materials19.

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‘Consumer protection has taken a pioneeringstride into a greener future. This is the first majorupdate of this Magna Carta of consumer rightssince it was adopted 19 years ago. The decision toapprove incorporation marks a victory forconsumers and provides an important tool whichgovernments can use in developing, andimplementing effective action plans forsustainable development. ConsumersInternational will both support and monitor theirefforts.’Anna FielderDirector, Office for Developed andTransition Economies, CI (1999)

General principles of the Guidelines

These state that: ‘Governments shoulddevelop or maintain a strong consumerprotection policy, taking into consideration theUN Consumer Guidelines and relevantinternational agreements.’, and‘…Governments should set their ownpriorities for the protection of consumers inaccordance with the economic, social andenvironmental circumstances of the countryand the needs of its population, bearing inmind the costs and benefits of proposedmeasures.’19

Objectives of the Guidelines

The Guidelines take into account the interestsand needs of consumers in all countries,particularly those in developing countries:‘recognising that consumers often faceimbalances in economic terms, educationallevels, and bargaining power: and bearing inmind that consumers should have the right ofaccess to non-hazardous products, as well asthe right to promote just, equitable andsustainable economic and social developmentand environmental protection’.

The guidelines for consumer protection havethe following objectives:

• to assist in achieving or maintainingadequate protection for their population asconsumers;

• to facilitate production and distributionpatterns responsive to the needs anddesires of consumers;

• to encourage high levels of ethical conductfor those engaged in the production anddistribution of goods and services toconsumers;

• to assist countries in curbing abusivebusiness practices by all enterprises at thenational and international levels whichadversely effect consumers;

• to facilitate the development ofindependent consumer groups;

• to further international co-operation in thefield of consumer protection;

• to encourage the development of marketconditions which provides consumers withgreater choice at lower prices; and

• to promote sustainable consumption.

For the full text of the Guidelines, seeAppendix 1, page 64.

The project

‘Changing consumption patterns’, asidentified by Chapter 4 of Agenda 21, remainsan integral focal point for this year’s WorldSummit on Sustainable Development (WSSD),taking place in Johannesburg, South Africa. Itwas stated in the Chairman’s SummaryProposals (PrepCom II, NY, 30 January 2002)that it would be important to promote ‘co-operation among civil society andgovernments to create initiatives forsustainable production and consumptionbehaviour’.

Moreover, in the NGO Statement fromPrepCom II, ‘NGOs called upon governmentsto support and actively develop, implementand monitor national policy frameworks andplans of action to achieve sustainableproduction and consumption in partnershipwith civil society. The starting point for thisshould be the implementation of the UNGuidelines for Consumer Protection, withspecial emphasis on confronting barriers tochange.’

Introduction

The UNEP/CI partnership is addressing anumber of the major themes of the Chairman’sreport from PrepCom II, including protectingconsumer interests, considering diversity,global outreach, and issues of goodgovernance, as well as disseminating bestpractices. The initiative is directly in-line withthe call from PrepCom II participants thatcollaboration between major groups, the UNand civil society as a whole is essential for theequitable and effective implementation ofsustainability policies.

Project summary

In 2002, three years after the UN Guidelineswere expanded to include new elements onSustainable Consumption, UNEP’s Division ofTechnology, Industry and Economics (DTIE)and CI identified the need to conduct a globalsurvey measuring progress of implementationof the sustainable consumption section of theGuidelines. Specifically, the research projectwas designed to discover whethergovernments were aware of the existence ofthe sustainable consumption section and todetermine what governments had done toimplement these elements in their nationalpolicy frameworks.

The project was divided into two majorsegments: a globally-distributed questionnaireand follow-up interviews with more than tengovernments. See Chapter 2, page 14, for moreabout how the research was conducted.

The project’s objectives were to:

• determine which governments know aboutthe UN Guidelines for Consumer Protection(Section G: Promotion of SustainableConsumption);

• establish what governments haveaccomplished: have the guidelines been asource of inspiration for (sustainableconsumption) policy makers?;

• identify good practices and lessons to belearnt from both developed and developingcountries (national case studies);

• present recommendations for future actionand commence planning follow-upactivities; and

• raise awareness of the UN Guidelines forConsumer Protection.

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Endnotes1 UNDP. (1998), Human Development Report. New York: Oxford University Press2 Swedish Consumer Coalition (2001) Sustainable consumption: A report from the Swedish Consumer Coalition, Sweden3 UNEP. (2001), Consumption Opportunities: Strategies for Change, Geneva4 See de Leeuw, B. (2001) Policies to Promote Sustainable Consumption: An Overview, (OECD) for a summary of sustainableconsumption policies5 UN CSD IWPCP, adopted in 1995.6 UNEP/CDG. (2000), Sustainable Consumption and Production. Creating opportunities in a changing world: Report of the 4thInternational Business Forum, Berlin, 19997 OECD. (2001), Policies to Promote Sustainable Consumption: An Overview, Paris8 Bentley, M. (2001), Consumer Trends and Expectations: An international survey focussing on environmental impacts, UNEPIndustry and Environment review, Vol. 23 no.4, October-December 20009 Consumers International (ROAP). (1997), A Discerning Middle Class?, Malaysia: Jutaprint10 There is more information about Consumers International’s activities and publications on sustainable consumption at:www.consumersinternational.org11 UNEP (2002) Global Status 2002 reports on Cleaner Production and Sustainable Consumption; consultation versions availableat www.uneptie.org/cp7 and www.uneptie.org/sustain12 Bentley, M. (2001), Consumer Trends and Expectations: An international survey focussing on environmental impacts, UNEPIndustry and Environment review, Vol. 23 no.4, October-December 2000.13 Bentley, M. & de Leeuw, B. (2000), Sustainable Consumption Indicators. Paris: EOLSS14 The UNEP/SETAC Life Cycle Initiative: See www.uneptie.org/pc/sustain/lca/lca.htm15 See www.uneptie.org/pc/sustain/design/design.htm (Includes the UNEP brochure: The role of product services systems in asustainable society)16 See www.uneptie.org/pc/sustain/design/green-proc.htm 17 Bentley, M. & Solgaard, A. (2001). Getting the Message Across through Regional Networks, Sweden, International Journal ofCleaner Production.18 UN DESA. (1998), Consumer Protection and Sustainable Consumption: New Guidelines for the Global Consumer: BackgroundPaper for the UN Inter-Regional Report Group Meeting (Sao Paulo, January 1998)19 UN CSD. (1999), The United Nations Guidelines for Consumer Protection20 UN Guidelines for Consumer Protection


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Questionnaire

Design and testingThe global questionnaire was designed to meetthe stated project objectives (as outlined onpage 13). The questionnaire was separated intotwo parts.

The first part focused on questions of a generalnature, concerning such aspects as thedetermined value and clarity of theGuidelines, as well as gauging governmentawareness and progress of associatedmonitoring activities. It also probed whethergovernments had promoted awareness-raisingand information campaigns focusing onsustainable consumption – these are notcovered in detail in Section G of the UNGuidelines.

The second part of the questionnaire requestedinformation on the status of governments’implementation of policies in line with thosereferred to in Section G of the Guidelines.

The core research team selected eightimportant Paragraphs from Section G of theGuidelines to be measured for implementationstatus. The survey focused on policies for:

• encouraging design, development and useof environmentally sound products andservices (Paragraphs 45 and 50 of theGuidelines);

• recycling programmes (Paragraph 45);

• environmental testing of products(Paragraph 47);

• effective regulatory mechanisms (Paragraph 51);

• economic instruments (Paragraph 52).

• indicators, methodologies and databases(Paragraph 53);

• sustainable government practices(Paragraph 54); and

• consumer research (Paragraph 55).

The second part of the questionnaire did notinclude all the issues raised in Section G of theGuidelines. Although there were no specificquestions relating to paragraphs 46, 48 and 49,these paragraphs, were occasionallycommented on by responding governments.(A future global review of implementation ofSection G should take these elements intoconsideration.)

The eight questions in part two wereinterpreted for meaning by the research teamand rewritten in abbreviated form to makecompleting the survey as time-efficient aspossible. The specific paragraphs of theGuidelines were provided with each questionas a reference for respondents and misunder-standings of questions by respondents wererelatively small (see ‘Limitations’, page 16).

Government respondents were encouraged toprovide examples in the case of positiveresponses to the survey questions. This wasconsidered necessary in order to help providelegitimacy to claims of policy implementationand to provide verification of such claims.Documentation was also requested that could

2 Research methodology

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Research methodology

provide further evidence of respective policydesign and implementation.

At the time of the questionnaire design, theUN Guidelines for Consumer Protection wereavailable only in English. Section G of the UNGuidelines (along with the survey questions)were translated by the project team intoFrench and Spanish, to provide a wider targetaudience for the survey. (Since then, theUnited Nations Conference on Trade andDevelopment (UNCTAD) has translated thecomplete Guidelines into French and Spanish.)

The final questionnaire drafts were tested byvarious individuals with direct experience insustainable consumption government policymaking and by external research instituteswith experience in designing and conductingsuch government surveys. Some adjustmentsto the questionnaire were made as a result.

The testing process identified some concernsabout complicated and confusing wording of asmall number of the Guidelines’ paragraphs.See Chapter 3, page 18, for more about this.

DistributionIn order to manage a project of this nature, itwas vital to construct a global project taskforce. The project’s regional task force, builtfrom CI’s regional office network, played aninvaluable role in following up governmentsin their respective regions.

The principal representatives of this task forcewere: Matthew Bentley (UNEP/CI Project Co-ordinator), Bjarne Pedersen and Jan Leipold(CI, Office for Developed and TransitionEconomies), Nessie Golakai (CI, RegionalOffice for Africa), Stefan Larenas (CI, RegionalOffice for Latin America and the Caribbean)and Rajeswari Kanniah (Regional Office forAsia and the Pacific).

The representatives from the four CI regionaloffices were responsible for following upgovernments once the questionnaires weredistributed, acting as both a point of contactfor queries and comments and also to promptthose governments that had not returned theirquestionnaires to do so.

Before the questionnaire was distributed (inOctober 2001), a detailed contact database wasestablished, including known sustainableconsumption contacts in over 20 governments.Where direct contacts were not identified,surveys were mailed directly to the ministry orgovernment body responsible forenvironmental issues.

The vast majority of questionnaires werecompleted by each government’s ministry ofenvironment. In a few cases, the governmentrequested other ministries to complete thequestionnaire. In other cases, they wereforwarded to working groups consisting ofstaff from various government bodies andother institutions, such as consumerorganisations.

One of the secondary goals of the project wasto build a contacts database of keygovernment personnel associated withsustainable consumption policy making allover the world. This resource will act as acritical future network for furthering globalpolicy making in this area.

As well as being mailed to governmentsthroughout the world, the project materialswere also posted on the UNEP/CI projectwebsite from where they could bedownloaded.

Survey sampleGovernments representing countries, specialadministration regions and territories were thetarget audience for this survey. In the cases offederal systems, such as Australia andGermany, federal governments reported onactivities carried out at both the federal andstate levels.

Questionnaires were in some cases received bynational consumer organisations, respondingon behalf of their government, though surveysfrom consumer organisations or other bodieswere not directly solicited. Contact with suchorganisations was established only aftergovernment officials presented theseorganisations with the questionnaire or whenthe team was requested to direct enquiries tosuch bodies.


Data collection and analysisSince a large proportion of questionnaireswere sent to governments in which a directcontact had not been identified, task forcemembers had difficulty establishing the statusof questionnaire completion. In many cases thequestionnaire was resent to the new contactidentified at the time of the phone call or e-mail.

In all, task force representatives directly orindirectly contacted more than three-quartersof the world’s national governments tomaximise response.

Numerous enquiries were fielded during thisstage of the research undertaking, includingthe response to queries about the topic areas of sustainable consumption and the UNGuidelines for Consumer Protection.

Thanks to the remarkable commitment of theproject task force, their affiliates and contacts,the original target of 30 to 40 governmentsurveys was easily met. This study includesthe results of 53 surveys, of which 50 werereceived by the March 2002 deadline. Threesurveys from Estonia, Finland and India,received after the initial deadline, have beenincluded in this updated version of the report(see Appendix 3, page 72, for a full list ofparticipating countries).

Invaluable contacts made at the time ofvarious government enquiries, and fromquestionnaires received prior to and after thedeadline, have resulted in the construction of a global database of primarily governmentsustainable consumption policy makers.

The small minority of questionnaires receivedfrom national consumer organisations wereprocessed in the same way as those receiveddirectly from governments. These includedsurveys from Zimbabwe (Consumer Councilof Zimbabwe), Chile (National ConsumerAssociation) and Italy (Consiglio Nazionaledei Consumatori).

An encouraging facet uncovered was the co-operation witnessed between consumerorganisations and government departments inthe completing of a number of these surveys.

For example, the Slovak Republic’s return wasa joint effort between the Ministry ofEnvironment and the Association of SlovakConsumers.

The cross-sector nature of sustainableconsumption resulted in a number ofgovernment departments needing to solicitinformation from other departments beforereturning the questionnaire. In some cases, thisresulted in lengthy delays and may haveresulted in the research team receiving thequestionnaires after the due date. However,positive signs were also observed in thisrespect. The utilisation of working groups, as was the case with Belgium, resulted in adetailed and well-supported questionnairereturn. Co-operation between governmentdepartments and partnerships betweenconsumer organisations, governments andcivil society are considered essential formoving implementation of these Guidelinesforward.

LimitationsVarious analyses were undertaken using a mixof data provided in the questionnaires, fromcomprehensive follow-up interviews and fromother communications with the governmentrepresentatives, via the phone and e-mail. Ifthere was any illegible or unclear text thatcould not be clarified, the data was notincluded in the analysis. In the case of thesurvey results tables in Appendix 3 (page 72),unclear or unanswered responses have beenleft blank.

Often when governments made a positiveresponse to a policy implementation question,they would comment that only partialimplementation had taken place and thatfurther actions were planned or needed in thefuture. This constitutes one of the weaknessesof the study, and further research is needed tomore fully investigate the level to whichinitiatives or legislation have beenimplemented in support of the sustainableconsumption elements of the UN Guidelines.Although quantifying a level ofimplementation would be difficult, it mayhave been interesting to offer governments analternative to ‘yes’ or ‘no’ on the questionnaire,such as ‘partial implementation’.

16

Research methodology

17

However, in terms of providing a first reviewof status, the research team is confident thatthe output is very close to the reality, bearingin mind that positive responses do notnecessarily equate to complete implementationof a particular paragraph of the Guidelines.Nor in all cases do negative responses meanthat nothing of any relevance has happened inthat country.

A careful review of the text provided asverification of positive responses highlightsthe fact that a number of the Guidelineparagraphs may include some confusingwording or complicated statements. Most ofthe unanswered questions, although relativelyvery small, may also be evidence of the factthat some respondents were unable todecipher the meaning of some of theparagraphs. See ‘Modification orclarification?’, page 20, for more on this.

Positive claims to Paragraph implementationwere verified using a range of methodsincluding comparison with known progress or actions, and examples provided in the textsections of each question. Moreover, thenational case studies and other supportingdocumentation provided an opportunity toverify data collected from those country’squestionnaires. When the research team wasunsure of the accuracy of a response in terms ofits relevance to the actual paragraph, attemptswere made to follow up with the governmentrepresentative. When this was not possible andthe response was clearly a misunderstanding ofthe Paragraphs, the response was assigned an‘n/a’ value, pending later verification.

Future studies should focus on furtherverifying claims of full or partial paragraphimplementation. And more advancedmeasurement techniques (indicators) shouldbe developed to clearly identify levels ofimplementation of the various policy areas.However, clarifying the respective meaning ofthe sustainable consumption elements of theUN Guidelines, so that all governmentscomprehend their related responsibilities,should happen first.

To improve understanding, the research teamsuggests designing toolkits and offering

training opportunities for governments,particularly those in developing countries.

Follow-up interviews

The purposes of the follow-up interviews were to verify information provided on thegovernment survey and to further expand the analysis of the respective government’ssustainable consumption-related policyimplementation. The national case studies (in Chapter 4, page 30) were drafted frominformation provided in the survey andsubsequent follow-up interview.

The national case studies are intended topresent positive examples of implementationefforts for governments preparing tocommence or further their own process ofimplementation of the Guidelines.

The interview form included questionsrelating to government participation atinternational meetings on either sustainableconsumption or the UN Consumer Guidelines,requirements for further implementation totake place and possible support of follow-upproject activities.

The following individuals were responsible for conducting the interviews: Brazil: StefanLarenas (CI ROLAC); Chile: Stefan Larenas (CI ROLAC); Germany: Jan Leipold (CIODTE); Japan: Shuei Hiratsuka (CI ROAPconsultant); Mauritius: Nessie Golakai (CIROAF); Senegal: Lamine Nidiaye (CI ROAF,West and Central Africa).

The project co-ordinator personally conductedinterviews over the phone or via e-mail withAustralia and China.

The project team would like to extend specialthanks to our contacts who kindly participatedin these interviews: Marguerite Carrington(Australia), Antonio Mello (Brazil), AlejadraArratia (Chile), Li Chuhua and Chen Shangqin(China), Christian Loewe (Germany), TetsuyaKamijo (Japan), R. K. Bunjun (Mauritius) andBoury Ngom (Senegal).

A Global Review of the Implementation of the UN Guidelines for Consumer Protection(Section G: Promotion of Sustainable Consumption)

Responded to surveycase study


18

The non-OECD countries were dividedregionally as follows:

• eight from Asia and the Pacific;

• two from the Middle East;

• nine from Latin America and the Carribean;

• six from Eastern and Southern Europe; and

• eight from Africa.

For a full list of participating countries, seeAppendix 3, page 72.

Response and participation

The project had a target of receiving 30 to 40government surveys, of 180 sent out. Thetarget was easily met, and this updated reportincludes the results of the 53 surveys receivedto date. The map, below, shows the location ofthe countries whose responses and viewsfeature in the report, and identifies thosecountries which feature as national casestudies (in Chapter 4, page 30).

Of the 53 surveys, 20 were from OECDcountries and 33 were from non-OECDcountries.

3 Survey findings

Survey findings

19

Government’s views

Awareness of the guidelines

Generally limited awareness andunderstanding indicate the need for renewedefforts to promote and explain the Guidelines.

A total of 32 governments, including those of anumber of developing countries, were awareof the existence of the sustainableconsumption section of the Guidelines.However, an inherent weakness identifiedfrom the research is that over a third (40%) ofgovernments surveyed had not been aware ofthe Guidelines before they had received theglobal survey.

There was no clear pattern in howgovernments became aware of the Guidelines.Most of those that had the Guidelines weredirectly involved in the expansion process inthe mid to late 1990s. Otherwise, governmentswere informed of the Guidelines from theUNEP or UN CSD websites, by monitoringUNEP and CI activities and from mediadocuments and official UN circulars. Othergovernment personnel came to know of themthrough discussions with colleagues and byparticipating in international meetings.

Many governments from all regions wereamong those that became exposed to theGuidelines for the first time because of theglobal study.

‘Generally the Guidelines [Section G] seem goodand, if they were implemented, it would helpbring us closer to a sustainable development. ButI doubt that many people are aware of them.’Jacob Bomann-LarsenAdviser, Ministry of Children and FamilyAffairs, Norway

Opinion of the Guidelines

Governments have overwhelmingly expressedsupport for the sustainable consumptionparagraphs of the UN Guidelines. Almost 80%of governments stated that the Guidelines areuseful for policy making. Governments havemade over 20 positive comments in directsupport of their existence and intention.

The Guidelines have only recently beentranslated into French and Spanish, so therewas a limit to the number of governments thathad access to them. And even now, with onlythree languages covered, governments willrequire translations into at least all official UNlanguages so that the Guidelines can be moreeasily understood and interpreted.

Only a small number of governments considerthat the Guidelines include confusingstatements or are not useful for policy making.However, there does exist room forimprovement, and a number of suggestionshave been made (see ‘Modification orclarification’, page 20).

Although many countries have alreadyimplemented policies in line with many of theGuideline’s paragraphs, the Guidelines can beused as a checklist or as a source for updatingor expanding policies in this area.Governments that have become aware of theGuidelines after making respectable progresstowards implementation have expresseddisappointment at not having had access tothem at an earlier stage.

‘Our overall impression of the Guidelines is thatthey emphasise and clearly specify the role ofgovernment in this issue.’Shang Qin ChenDirector, State Administration ofEnvironmental Protection, People’sRepublic of China

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Graph 3.1 Countries aware of the Guidelines


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‘I think [Section G] is very comprehensive and itprovides an effective guideline for decision/policymakers to put into place national regulatorymechanisms.’Ernest BaniDirector, Environment Unit, Vanuatu

‘The UN Consumer Guidelines are a very goodinitiative. However, we believe that the UN,through the work of UNEP, must provide moretools for protecting the environment through thepromotion of sustainable consumption.’Nassere KabaDirector SAAJSP, Ministry ofEnvironment, Côte d’Ivoire

Modification or clarification

Over a third (38%) of the governmentssurveyed believe that Section G of theGuidelines need to be in some way modified.The comments range widely, but theunderlying theme is that certain elements lackclarity and must be better explained. Some ofthe comments received include the following.

• The means of implementation are not veryexplicit. A more descriptive modus operandiwould have been more effective.

• The Guidelines should be amended andupgraded, subject to the provenachievements of the document.

• The Guidelines need to be upgraded in linewith new developments in the field ofbiotechnology as well as other technologicaldevelopments.

There was a suggestion that the Guidelinescould have been simpler and perhaps moreconcrete. One possible approach to correct thiscould be to make the Guidelines more like achecklist for government implementation ofmeasures. A checklist, incorporated within agovernment toolkit, would offer a solution.

There was also a request for a clearerdefinition of sustainable consumption to make it more obvious that a sustainableconsumption strategy is a consumptionstrategy that any country can attain (takinggeographical differences into consideration),and that resource use per capita in theindustrialised world must be reduced. Ahigher quality of life should be promotedthrough a sufficient – but as low as possible –material consumption level.

A number of governments have identifiedthat, within the framework of the Guidelines,countries should formulate their own set of‘sub-guidelines’. Certainly, in the case ofcountries that use languages other thanEnglish, French and Spanish, this will be veryimportant.

A call was made for an elaboration ongovernmental regulations on enterprises, andon the promotion of active and voluntaryparticipation of businesses and consumers inrealising sustainable consumption patterns.Governments also highlighted the importanceof incorporating sustainable consumption intoeducation programmes, especially at primaryand high-school levels.1

Finally, the researchers included a question on governments raising consumer awarenessabout sustainable consumption issues,particularly because this item is not coveredby the Guidelines. The majority (80%) ofgovernments identified that they wereinvolved in the promoting of such activitiesthrough the various media.

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Graph 3.2 Opinion of the Guidelines

Survey findings

‘The Guidelines include a lot of very importantpoints for sustainable consumption, but they are a bit confusing. They could be improved byincreasing the clarity and accuracy and byidentifying the key strategic objectives that must be followed.’Anne-France WoestynEngineer, Service Product Policy, FederalDepartment for the Environment, Belgium

‘From a public policy perspective, theseguidelines represent a useful framework. [SectionG] rightfully underlines the importance ofaddressing the issue of sustainable consumptionvia an appropriate mix of policies in partnershipwith business and relevant organisations of civilsociety. Policies are to include regulations,economic and social instruments, informationprogrammes to raise awareness, and promotion ofsector-specific environmental-management bestpractices. Section G is well-written and highlyrelevant as it provides clear legitimacy for policydevelopment as well as benchmarks andprinciples which can be enshrined in legislationand voluntary instruments.’Duncan BuryHead, Product Policy, National Office of Pollution Prevention, EnvironmentCanada

Progress of implementation

Information and research

Information and research initiatives have thelowest level of implementation of all theparagraphs of the Guidelines.

Information measuring progressJust over half (56%) of the governmentssurveyed noted that they had not specificallymeasured progress towards sustainableconsumption. There also seemed to be someconfusion in terms of what is expected fromthis Paragraph. Some governments whoanswered in the positive to this questionprovide a range of public environmentalinformation, but lack a holistic measurementdevice for sustainable consumption.

There are very limited cases of governmentsthat have existing sustainable consumptionindicator programmes, based on anyframeworks such as the type produced by theOECD Environment Directorate (for example,‘Towards more sustainable householdconsumption patterns: Indicators to measureprogress’) and the UNCSD indicator networkon ‘Measuring changes in consumption andproduction patterns’.

This is certainly an area of weakness. Anumber of governments, including those ofSweden and Canada, are compiling a set ofindicators for sustainable development, whichwill include measurements for sustainableconsumption. However, there are otherexamples of good practice.

For example, the Danish EPA measures and studies:

• number of eco-label licenses (ScandinavianSwan and European Daisy);

• eco-label revenue development;

• the development in market share of eco-labelled products within certaincategories; and

• how the environmental performance ofsome products develop.

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Graph 3.3 Should the Guidelines be modified?


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The results and figures are published on thehome page of the Danish EPA’s website.2

The Mexican government provides monthlyupdates of progress towards sustainableconsumption. Articles are also often publishedin the Consumer magazine.

Research on consumer behaviourAbout half (56%) of governments arepromoting research in this area, so there aremany opportunities for dissemination of goodpractices.

Governments seem conscious of the need tostudy consumption patterns, with manyimplementing research projects. Somecountries, including Belgium, Norway andGermany, have initiated extensive andnumerous research projects, though most ofthose conducting research have limited theiractivities to one or two isolated studies. Thetopics studied generally focus aroundhousehold patterns of consumption (water,energy, transport and waste).

The organisations conducting the researchrange from the Ministry of Environment tonational consumer organisations to specially-designated consumer research institutes.Moreover, a number of governments that haverecently instituted efforts in this area havenoted that the research studies will become anongoing process of measurement towardssustainable consumption.

Promoting and analysing consumptionpatterns remains a potential avenue forincreased international co-operation. Bothdeveloping and industrialised countrieswould benefit from a better understanding ofconsumer behaviour in relation to minimisingenvironmental and social impacts.

‘This is one of our needs, and outside assistancewill help us to figure out unsustainableconsumption behaviours.’Farran RedfernMinistry of Environment and SocialDevelopment, Kiribati

‘Several research projects have been executed bythe government. Nowadays research is focussingon the social context in which consumers operate(peer groups) and on the finding of factors thatmay increase opportunities and preference for SC.’Marten L. KoenMinistry of Housing, Spatial Planning andEnvironment, The Netherlands

‘Research studies have been conducted intoincentive measures to change consumerbehaviour – for example, the use of economicinstruments.’B. M. S. BatayodaDirector, Ministry of Transport andEnvironment, Sri Lanka

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Graph 3.5 Governments promoting researchinto consumer behaviour

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Graph 3.4 Governments measuring progresstowards sustainable consumption

Survey findings

Product testing

Progress in this area has been limited to thetesting of only a small range of products, andis often only connected to those products andservices accredited by green labelling schemes.

More traditional product testing, whichconcentrated on quality and health aspects, isgradually being expanded to includeenvironmental considerations. Many of thegovernments that answered positively to thissurvey question, including those of Norway,Sweden, Brazil and Hong Kong (SAR), haveprogrammes in place in coalition with nationalconsumer councils and organisations.

The specific products being tested rangewidely. For example, Sweden identified thatthey were testing household products; Chinanoted products involved in interior householdrenovations (for example, paints); the Dutchtest passenger cars; Kuwait, Chad andLithuania test food products; Poland andHong Kong (SAR) test packaging items; andDenmark tests detergents.

Of the 64% of governments that said they wereinvolved in some form of environmentalproduct testing, a large proportion areinvolved in this process only by way of eco-labelling schemes. However, many of thesegovernments highlighted the need forexpanding these efforts to include a widerrange of products and services.

‘Assessment for green label products is carriedout by the Standards Institution of Israel.Standardised guidelines for such assessment were produced by the Institution in 1993.’Ori LivneDirector, International Relations Division,Ministry of the Environment, Israel

‘Use of the Environmental Choice label requiresassurance that products are environmentally safe (and have been tested). Examples of NewZealand products that carry the label includepaints and carpet.’Rob OgilvieSenior Policy Analyst, International Co-ordination, Ministry for theEnvironment, New Zealand

Regulations

Integral to any serious efforts to sustainconsumption patterns, the implementation ofregulatory mechanisms to protect consumersand economic measures to promotesustainable consumption must be stepped up.

Effective regulatory mechanismsAlthough 77% of governments said they hadeffective regulatory mechanisms for theprotection of consumers in place, almost halfof these governments did not specify whethersustainable consumption factors were coveredin legislation. Consumer protection legislationbeing implemented focuses on consumerhealth and safety issues, while often not alsoincorporating specific environmental aspects.

Apart from a host of OECD countries, SriLanka, Lithuania, Senegal, Mauritius,Hungary, Hong Kong SAR, Kiribati, Argentinaand Brazil are among the governmentssurveyed who mentioned consumer protectionlegislation. But what is not always clear iswhether consumer rights related to highenvironmental standards are being protected.

A range of other governments, including thoseof Croatia, Seychelles, Zimbabwe and Côted’Ivoire, have consumer protection legislationin either the construction or adoption phases.It is not clear in such cases whethersustainable consumption issues will be raisedwithin the new laws.

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Graph 3.6 Countries conducting impartialenvironmental testing of products


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Norway is currently strengthening itsconsumer protection legislation, while theSlovak Republic’s legislation has beenmodelled on the UN Guidelines for ConsumerProtection. The government of El Salvador isfortifying legislation and practices so that itestablishes a national culture of sustainableconsumption.

Non-OECD countries that have focusedspecial attention on sustainable consumptionin their consumer protection or otherregulatory mechanisms include Chile, ElSalvador, Mexico and China.

‘Section G has not been adopted in its totalitybut there are regulations under theEnvironmental Protection and Pollution ControlAct and other legislation, which has implicationsto regulate unsustainable practices related toconsumption patterns.’Lubinda AongolaDirector, Planning and InformationDepartment, Ministry of Environment andNatural Resources, Zambia

‘On 15 March 2001, a Green Consumptioncampaign was launched by the Chinese ConsumersAssociation in collaboration with other relatedgovernment departments. The Law of the PRC onthe Protection of Consumer Rights and Interestsalso promotes sustainable consumption throughpublicity and education of the community at large.’Shang Qin ChenDirector, State Administration ofEnvironmental Protection, People’sRepublic of China

‘The Government communication Actionprogramme for sustainable consumption patternsfor consumers/households sets out thegovernment’s goals regarding consumerprotection, environment and sustainableconsumption. The Government bill, ActionProgramme for Consumer Policy 2001-2005,contains among five goals one which states thatconsumption and production patterns that lessenthe strains on the environment and contributes to a sustainable society should be developed.’Anna SanellHead, Consumer Policy Division, Ministry of Justice, Sweden

Economic instrumentsJust over half (58%) of governments surveyedsaid they had economic instruments in placeto promote sustainable consumption. Thereare also some ambiguities here in that somegovernments listed economic measures thatmay or may not necessarily be in support ofsustainable consumption patterns. However, avariety of actions are being taken by variouscountries that are legitimately supportive ofsustainable consumption.

Many governments cited their involvement intaxing leaded fuel. This global trend seems tohave had some success, considering thatleaded fuel consumption has decreasedmarkedly and even phased out entirely insome countries like Australia.

Mexico has a vehicle verification programme,which aims to minimise polluting agents byencouraging motorists to keep their enginesmaintained. On particular days, cars withhigher emissions will not be allowed tocirculate. Mexico has also imposed an‘ecological tax’ on gasoline to elevate its price,encouraging motorists to use their vehiclesmore efficiently.

Higher import duties on new cars comparedwith used models was also sighted a couple oftimes. Croatia, for example, charges a 2.7%lower import duty on used cars.

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Graph 3.7 Governments with effectiveregulatory mechanisms

Survey findings

Deposit schemes for plastic bottles and cansare also quite common and operate with directgovernment intervention. Subsidies for envi-ronmentally friendly products, recycledproducts and recycled waste are also in placeto varying degrees around the world.

Belgium’s so-called ‘ecotaxes’ are levied oncertain product categories that have adetrimental effect on the environment, namelybatteries, disposable cameras, packaging ofink, glue and solvents. The aim of these taxesis to influence consumption choices andproduction methods (recycling).

Australia employs a range of economicmeasures to promote more sustainableconsumption, particularly at State level. Theseinclude a $A200 levy on Sydney car parkspaces (encouraging use of public transport orcar pooling), making CNG excise-free(encouraging use of natural gas vehicles) andlocal council rebates on water-efficient toiletsand showerheads.

There are numerous other good practices,including environmental levying by theSeychelles, providing tax incentives toproducers of 12 different products; low-interest loans to recycling industries by theRepublic of Korea; and a 30% sales taxreduction on light vehicles that meet theEuropean emission standard by China.

Slovakia, the Czech Republic, Israel and Fiji,among others, indicated that theirgovernments were currently considering theimplementation of economic measures.

Other governments, namely New Zealand,rely primarily on voluntary actions bybusinesses and households to changeconsumption patterns. The governmentindicated that economic measures such as thepetrol tax and landfill charges that arecurrently in place are primarily revenue-raising instruments.

The German government has been anotherprominent supporter of economic instruments.Since 1998, the government has beenintroducing a five-step eco-tax on mineral oiland other energy materials to reduce energyconsumption and resource depletion.

However, Germany calls for caution. At themoment, it is not widely known what effectseconomic measures will have on consumptionpatterns. Recent research has identified thatthe existing economic instruments have only alimited influence over consumption levels inGermany. It is in this context that voluntaryschemes like eco-labelling (for example, theBlue Angel scheme3) may be betterinstruments to safeguard high standards ofconsumer protection and sustainableconsumption.

Of course, governments must determine whichactions will be the most effective within theirown borders. Certainly, economic measures,such as the internalisation of environmentalcosts – an important complimentaryinstrument in the drive to implementsustainable consumption patterns – remain at a minimum.

‘Norway supports the principle of internalisingenvironmental costs, but this has only partiallybeen implemented. Examples include the taxationof cars (purchase and petroleum), waste andelectricity. About 5 to 10% of the government’stax revenue is related to environmental taxes.’Jacob Bomann-LarsenAdviser, Ministry of Children and FamilyAffairs, Norway

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Graph 3.8 Governments with relevanteconomic instruments


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‘The Environmental Policy of Nicaragua 2001-2005 establishes within its sections the promotionof sustainable consumption. Nicaragua supportsthe internalisation of environmental costs throughthe creation of the System of Accounts Satellite ofthe Ministry of Environment, promoting thereforethe valuation of environmental goods and servicesand the prioritisation of investment decisions anduse of such, also taking into account the socialnecessities.’Denis Fuentes OrtegaDirector of Planning, Ministry of theEnvironment and Natural Resources,Nicaragua

Recycling programmes

Solid international progress by governmentsin encouraging recycling programmes shouldnow be emulated by efforts to promotepurchasing of recycled products.

Most governments (83%) surveyed identifiedthat their country had implemented someform of recycling practices. Countries from allregions and all major world aggregates havetaken part. From recycling factories in Senegalto paper and plastic recycling in Costa Rica,Uruguay, El Salvador, to vast operations inMexico, China and Brazil, the progress hasbeen encouraging.

Many countries have implemented legislationto support recycling operations, and initiativesseem to be on the rise. Recovery rates on post-consumer solid waste include targets of up toand beyond 50% by 2010.

Some countries, notably developing ones, areactively collecting products, such asaluminium cans and plastics and exportingthem for processing in neighbouringcountries. For example, Mauritius sendscompacted PET bottles to countries like SouthAfrica, and Kiribati exports collectedaluminium cans to Australia. The recyclingindustries in Fiji and the Seychelles collect,compact and export the recyclable materials.In the case of Fiji, recycled products areoffered at a discount to other products.

Governments are often being supported byprivate industries or NGOs that offerrecycling services. In developing countries,

private sector activities provide the only formof recycling operations. Partnerships betweenthese two bodies will be important forensuring improvements in recovery rates.

A well known recycling scheme is the German‘Green Dot’ (Grüner Punkt) that covers therecycling of various packaging materials. TheGerman government is proposing to introducerecycling schemes for electrical equipmentand appliances (WEEE-Directive). To increasepurchasing of recycled products (privateconsumer, public procurement), a spectrum ofrecycled products has been integrated into theBlue Angel scheme.

The weakness in the context of successfulrecycling practices seems to be the lack ofsupport and promotion of recycled products.Sustainable (green) procurement efforts havethe potential of attributing to this need.

‘Pilot projects have been developed for therecycling of products such as plastic, paper, glass and tins.’Miriam VegaMinistry of Planning and Environment,Uruguay

‘The HKSAR Government plans to raise theoverall waste recovery rate from 34% in 2000 to40% in 2007. In September 2001, thegovernment launched a series of new initiativesto further promote waste separation and recoveryin Hong Kong. It has already placed about13,000 waste separation bins in public venues,schools and public housing estates, and suppliedanother 6,600 in private housing estates. It plansto inject around $US13 million into theGovernment’s Environment and ConservationFund to support primarily community-basedwaste prevention and recovery programmes.’Raistlin LauPrincipal Assistant Secretary, theEnvironment and Food Bureau, TheGovernment of the Hong Kong SAR,People’s Republic of China

‘Pilot programmes are being developed wherebycertain NGOs and associations are recyclingplastic bags.’Zakaria Hoski, Director-General of theMinistry of the Environment and Water,Chad

Survey findings

Products, services and technology

A range of actions demonstrates good practicein a number of areas. However full life cycleimpacts are rarely contemplated.

This category saw the highest implementationrate, with approximately 87% of governmentssupporting initiatives that in some wayencouraged the design, development and useof safe and energy and resource-efficientproducts and services.

Energy efficiency campaigns, such as oneadopted by the Argentine government, werecommonly mentioned, as well as resource-saving consumer awareness campaigns suchas those in Nicaragua and Sri Lanka.

The development and advancement of eco-labelling schemes is a trend being emulated inall regions and world income aggregates. MostOECD countries surveyed indicated theexistence of eco-labelling schemes. Many non-OECD countries, such as Bulgaria and Brazil,also have such programmes.

A number of countries specifically identifiedthe incorporation of life cycle assessment(LCA) practices in specifying eco-productsunder such labelling schemes. Switzerland, forexample, noted its tradition of promotingLCAs, and New Zealand includes LCAanalysis in product specifications. Denmarkstarted a grant scheme in 1998 that supportsthe development of cleaner products and

relevant instruments, such as LCA.

Another encouraging sign is the growingnumber of cleaner production and cleanertechnology centres. Brazil and Croatia haveboth recently opened cleaner technologycentres. Hungary and Israel have recentlyestablished cleaner production centres4.Israel’s Centre for Cleaner Production, a jointventure between the Ministry of theEnvironment and the Manufacturers’Association, promotes clean production(reduction at source), green-label products andISO 14000. At present, these do not incorporatecomprehensive life cycle analyses, but this isplanned for the future.

Countries such as Norway, the Netherlandsand the Republic of Korea have promoted eco-design practices. Korea, for example, hasdeveloped eco-design techniques using LCA.

The Belgium Federal Department for theEnvironment is preparing a Guide Plan forintegrated product policy (IPP), the life cycleapproach being one of the main orientationsfor the plan. Norway, along with the otherNordic governments developed a strategy foran IPP to minimise the full life cycleenvironmental impact of products andservices. Many other governments aresupporting IPP thinking.

The Netherlands has developed environmentalcriteria for sustainable building materials andset up a multi-year programme on theimplementation of product-orientedenvironmental management systems.

Other initiatives include Mauritius givingvarious fiscal incentives to the businesscommunity, and removing products thatadversely affect the environment from themarket in phases. Japan’s Law Concerning thePromotion of Procurement of Eco-FriendlyGoods and Services encourages consumers toconsider the environmental aspects of theproducts and services they are purchasing.

Australia has recently completed a project tointroduce LCA into the construction industry,and a software package (LCAid) forundertaking LCA for construction projects.

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Graph 3.9 Governments with recyclingprogrammes


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Canada encourages the development and useof environmentally-sound products, servicesand new technologies and consideration of thefull life cycle impacts through a number ofinitiatives including the Environmental ChoiceProgramme (ECP) and the EnvironmentalTechnologies Verification (ETV) programme.The ETV programme verifies performanceclaims associated with environmentaltechnologies. Canada has also supported thedevelopment of eco-efficiency indicators andhas developed a training package on Designfor the Environment.

Encouraging progress has been made on anumber of fronts, although expandedactivities by all governments in the areasdiscussed above will be necessary.

‘The Government encourages environmental-friendly products, and every year the Minister of the Environment commits a prize for the mostenvironmental products on the advice of repre-sentatives of the government.’Ondrej WagnerMinistry of the Environment, Czech Republic

‘The government has encouraged thedevelopment and use of environmentally-soundproducts by supporting the following events:Sustainable Consumption workshop (March1999), World Consumer Day 1999, (SustainableConsumption) held in El Salvador and WorldConsumer Day 2001, (New Technologies).’Norma CamposConsumer Protection Division, El Salvador

‘The government awards a national prize tocompanies who have invested in cleanproduction for protecting the environment.’Nassere KabaDirector SAAJSP, Ministry ofEnvironment, Côte d’Ivoire

Sustainable government practices

While most governments have started withefforts to recycle products (paper, plastic),others have gone much further in their driveto make their own operations sustainable.

Just over 70% of governments surveyed haveimplemented sustainable practices in theirown operations. However, the majority ofgovernments have only promoted wasterecovery and separation in governmentdepartments. Such recycling activities areessential elements of a sustainable operation,but they need to be extended.

It should be noted also that a small number ofgovernments who made positive responses tothis question seemingly misunderstood thequestion to mean sustainable practices at thelocal or regional level, rather than specificinternal government operations.

Apart from the varied waste collection andrecycling systems, and other efficientpractices, such as energy- and water-savingschemes, the actions of many governments toimplement Environmental ManagementSystems (EMS) and audit schemes, ISO 14001accreditation, and triple bottom-line reporting,are all extremely encouraging.

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Graph 3.10 Governments that haveencouraged development of environmentally-sound products and services

Survey findings

Brazil’s Ministry of Environment developed aprogramme, Environmental Agenda for PublicAdministration, to induce, on a voluntarybasis, the adoption of management modelsthat correct and minimise negative impacts ofadministrative work (for example, recycling ofpaper, and water use).

Canada is examining the government’stransportation sector and attempts are beingmade to use green vehicle fleets (‘envirobuses’)which operate on alternative fuels and providea demonstration of new technologies, as wellas a proposed transit pass programme.

An integral component of a legitimatelysustainable government is the need forsustainable or green government procurement.

Given that government purchasing cansometimes exceed 15% of national purchasing,governments have a clear and direct role inimproving conditions for recycled products.

Some governments, primarily from OECDcountries, have (or are developing)procurement guidelines that encourage the useof recycled products. Various governmentshave developed (or are developing) greenprocurement websites. One focal point is oftenthe desire to phase out the use of non-recycledpaper. But going further and includingreplacing of as many products as possibleremains a challenge.

Building partnerships provides furtheropportunities. For example, the NorthAmerican Green Procurement Initiative willfoster and promote the purchase and sale ofgreen products and services throughout NorthAmerica. It is envisaged that a network ofsuppliers and purchasers will be created forthis initiative.

Governments from all regions have started torequest their departments to compileenvironmental reports, ensuring an increasedconsciousness of the importance ofimplementing sustainable practices. A holisticapproach to this reporting exercise, outliningtime-bound and measurable targets, remains achallenge for all governments.

Governments should lead by example andeffectuate the enormous potential to directlymotivate change (for example,sustainable/green procurement).

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Endnotes1 Some specific comments regarding the guidelines paragraphs include the possibility of shortening and modifying Paragraph 43,the spitting of Paragraph 45 into two separate points, the clarification of 47, 51 and 53 (making it more precise from ameasurement point of view) and an addition of text to Paragraph 44.2 Home page of the Danish EPA: www.mst.dk 3 See www.blauer-engel.de for more information4 UNIDO and UNEP have joined forces to help introduce Cleaner Production in developing countries and countries in transition.The UNIDO/UNEP Programme for National Cleaner Production Centres (NCPCs) is a unique programme of capacitydevelopment to help achieve adoption and further development of the Cleaner Production concept at the national level. Therehave been 22 Centres established in the following countries, since late 1994: Brazil, China, Costa Rica, Czech Republic, ElSalvador, Ethiopia, Guatemala, Hungary, India, Kenya, Korea, Mexico, Morocco, Mozambique, Nicaragua, Slovak Republic, SriLanka, Tanzania, Tunisia, Uganda, Vietnam and Zimbabwe.

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Graph 3.11 Countries with sustainablepractices in government departments


Overview

The national case studies here represent aselection of examples of good practice inrelation to implementing sustainableconsumption policy in line with the UNGuidelines.

Countries were chosen in terms of the qualityof their survey responses and their willingnessto provide expanded accounts of their progresstowards complete implementation of theGuidelines. The researchers attempted tobalance responses from developed anddeveloping countries, with coverage of themajor world regions.

Some of the countries are more advanced thanothers in their progress, but all case studieshighlight varying and interesting initiativesand approaches towards implementing thevarious elements. Governments intent onstarting or advancing their ownimplementation efforts should learn valuablelessons from the following case studies.

Although the focus of the case studies rangefrom highlighting measures directed atindustry to those directed at consumers, theyall demonstrate the commonality ofrespectable progress and strong support of theusefulness of the Guidelines for achievingsustainable consumption.

Australia

Australia is one of a group of countries thathas taken a leadership role in supportingand facilitating international work onchanging consumption and productionpatterns.

Australia considers that the UN Guidelinescontain some useful recommendations forthe Government to take into account inpolicy development, and provide a soundframework for the development ofstrategies to foster sustainableconsumption within Australia.

Australia has been aware of the UNGuidelines for Consumer Protection from theirinception and has participated in internationalnegotiations on the proposal to encompasssustainable consumption in them.

Australia considers the Guidelines easy tounderstand and useful for policy making.Australia notes, however, that some recom-mendations may need to be assessed in a cost-benefit framework as, in some instances, thecosts of implementing the Guidelines mayoutweigh the benefits.

Australia is a federation of states, andstrategies to promote sustainable consumptionare developed and implemented at Federaland State government levels. The nationalenvironment department, EnvironmentAustralia (EA) provides national leadership onconsumer protection issues related tosustainable consumption. EA’s initialinvolvement with the UN Guidelines was in1996, when the Commission on Sustainable

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4 National case studies

National case studies

Development first considered the inclusion ofmatters related to sustainable consumption inthe Guidelines.

The Federal Government, various State andTerritory governments and some local councilshave undertaken a variety of programmesaimed at promoting sustainable consumption.A document, More with less, published by theFederal Government in 1996, outlines manysuch initiatives which existed at that time.Numerous other programmes have beenestablished since, including:

• The Green Games initiative, encompassingthe development, application andpromotion (to international visitors as wellas the Australian public) of ‘green’ solutionsand technologies in the design andconstruction of the 2000 Olympic villageand venues at Homebush Bay, Sydney.

• An energy consumption labelling schemefor household electrical appliances.

• Excise tax on leaded petrol to accelerate itsphase-out.

• Subsidies for installation of solar hot waterheaters in homes.

• Numerous national- and state-initiatededucation programmes encouraging thepurchase of products which are recyclable,or have recycled content or minimalpackaging. Two recent consumerinformation sources are the booklet Yourhome (also on CD-ROM and website) onpassive home design, ‘green’ buildingmaterials and furnishings, and water andenergy efficient appliances; and the bookletShop smart: buy green advising consumers onthe likely environmental impact ofcommonly purchased products and services.

• A discounted GreenSmart home loan thatrewards environmental features in houses(an initiative of the Australian HousingIndustry Association resulting from an Eco-efficiency Agreement with the FederalGovernment).

• Household recycling programmes.

• Household Greenhouse Action Programme(addressing energy consumption).

• Legislation related to manufacture, sale andimporting of ozone-depleting substances.

The Australian Government is involved in arange of activities that indirectly relate tosustainable consumption policy. For example,the Government develops voluntary Eco-efficiency Agreements with peak and sectoralindustry associations. Through theseagreements, industry associations undertake topromote the concept and practice of eco-efficiency to their member companies (that is,producing goods and services using lessenergy and fewer natural resources, resultingin less waste and pollution).

In developing specific programmes toencourage sustainable consumption (forexample, education and differential petrolpricing), the Government engages with allrelevant stakeholders including consumerorganisations, industry and environmentNGOs.

Australia has encouraged and facilitatedinternational work on changing consumptionand production patterns in recent years. Themain focus of Australia’s work to date hasbeen through the provision of support to theOECD Work Programmes on SustainableConsumption and Production and IncreasingResource Efficiency.

Australia contributed funds for a workshopheld in Korea in September 1995. In February1997, Environment Australia hosted the OECDExperts Workshop on SustainableConsumption of Water and the OECDinformal review meeting on the SustainableConsumption and Production WorkProgramme in Sydney. The main focus of thereview meeting was to develop a report toOECD Ministers on the Work Programme.

Australia provided further funds to host anOECD workshop on eco-efficiency in Sydneyin March 1999. A national round table was alsoheld in March 1999 to promote the concept ofeco-efficiency to Australian industry.

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Australia contributed to the cost of runningthe UNEP/CI Workshop on SustainableConsumption in Asia and the Pacific, held inKuala Lumpur in August 2001. Thisworkshop agreed on priorities for action toachieve sustainable consumption in the regionas input for the report on the global status ofsustainable consumption, to be presented atthe World Summit on SustainableDevelopment, 2002.

Implementing the Guidelines

The following section provides a selection ofhighlights from the survey and follow-upinterview.

Has your government encouraged thedevelopment and use of environmentally-sound products and services and newtechnologies that take into considerationfull life cycle impacts? (Paragraphs 45, 50)

Most Australian governments have initiatedprogrammes which foster the developmentand use of environmentally-sound productsand services, and of new technologies thattake account of life cycle impacts. However,cost implications have limited the extent towhich full life cycle assessment is undertaken.

Some recent projects are as follows.

• Environment Australia recently completeda project to introduce life cycle assessmenttechniques into the Australian constructionindustry. Project outcomes include adedicated LCA website(http://buildlca.rmit.edu.au) that includesa series of LCA case studies, and a draftframework for collecting and reporting LCAdata specific to the construction industry.

• The New South Wales State Department ofPublic Works developed LCAid, a softwarepackage for assisting in the life cycleassessment of construction projects forSydney Olympics projects.

• Under the Green Buildings initiative, aNational Building Environmental RatingSystem is being developed. This willprovide an accurate indication of theenvironmental impact of both commercial

and residential buildings. The draft systemwill assess all relevant environmental issuessimultaneously: energy consumptionduring building operation, material choice,water consumption, land use andbiodiversity impact, resource efficiency,transport and location issues, internalhealth and comfort, and waste production.When launched, the scheme will bepromoted to the construction and realestate industries and to consumers.

• In April 2001, the Government released thepublication Product innovation – The greenadvantage: An introduction to design forenvironment for Australian business. Thebooklet encourages manufacturers toreduce environmental impacts at each stagein the life cycle of their products and henceincrease the availability of innovative andenvironmentally-sustainable products.

• In September 2001, the Governmentlaunched the Environment IndustriesAction Agenda, an ambitious ten-year planto foster excellence, growth, competitive-ness and innovation in the Australianenvironment industry, with a view todelivering better environmental outcomesin Australia and the region.

Does your government have in placenational recycling schemes?(Paragraph 45)

Overall responsibility for waste and recyclinglies with State and Territory governments,while on-the-ground management is theresponsibility of local councils.

For example, State jurisdictions areresponsible for implementing and enforcingregulations regarding waste management andrecycling, while local councils within eachjurisdiction operate the landfill and the wasteand recycling collection systems. A range ofrecycling schemes have been established in alljurisdictions, with the vast majority of urbanareas in Australia covered by householdrecycling schemes. Most schemes collectmixed household recyclables (with paperbeing separated out) which are then sorted atcollection facilities and sent for recycling. Inrural areas, household collections are rare, but


many have recycling collection points innearby towns.

Latest industry estimates are that Australia isrecycling 70% of old newsprint, 92% of paperpackaging, 64% of aluminium containers, 25%of liquid paperboard used for milk and juicecartons, 32% of PET, 15% of HDPE and 40% ofsteel cans.

There are also a number of industry-ledinitiatives, often developed in collaborationwith governments, which provide a nationalfocus to recycling activities. Some examplesinclude:

• A component of Australia’s NationalPackaging Covenant (a self-regulatoryagreement between industry in thepackaging chain and all spheres ofgovernment to promote a product-stewardship and life cycle approach topackaging waste) is the IndustryTransitional Funding Arrangement.Packaging supply chain signatories arecontributing up to $A17.45 million toundertake national projects directed atdeveloping viable markets for materialsrecovered from domestic recyclingcollection systems.

• The aluminium can industry operates anational aluminium beverage containerrecycling programme. Kaal Australiamanages a network of recycling centres thatpay cash for used aluminium beverage cans.‘Cash for Cans’ community centres paypeople for used aluminium beverage cansdelivered to the centre. Local communitygroups, such as scouts, sport groups andlocal schools, operate the centres.

• drumMUSTER is a national programme forcollecting and recycling empty, cleaned,non-returnable crop protection and animalhealth chemical containers. The programme,an initiative of the Australian LocalGovernment Association, the NationalFarmers’ Federation and the NationalAssociation for Crop Production andAnimal Health Veterinary Manufacturersand Distributors Association, involvesfarmers, local councils, chemicalmanufacturers and resellers. Local councils

usually operate the programme, andindustry provides financial and planningassistance to ensure the collectionprogramme is effective and cost-neutral.

• The mobile telephone industry operates arecycling collection programme for mobilephones, batteries and accessories. Theprogramme is voluntary, funded bymanufacturers and carriers. Consumers areasked to take their unwanted mobile phonehandsets, batteries or accessories toparticipating carrier stores or specialrecycling bins located in retail outlets.

• The Australian newsprint industry isactively working towards a nationalrecycling target of 74% by 2005. Industry hascommitted $A1million a year in advertisingspace in newspapers and magazines toencourage newsprint recycling.

In addition, the Federal Government hasrecently initiated a number of recyclingprojects with a national focus, as follows.

• A national specification/guide has beendeveloped in consultation with Stategovernments and the construction industryto use recycled concrete and masonrymaterials in new concrete applications,providing the technical basis for their use.This will be published this year as anAustralian Standard.

• There is an Australia-wide approach to themanagement of waste tyres, focused onencouraging recycling. Approximately 57%of waste tyres go to landfill in Australia,and 13% are illegally dumped. Variouspolicy options within a product-stewardshipframework are being assessed, includingtake-back arrangements, advance disposalfees, benefits to recyclers or collectors andfunding for research and development.

Has your government created orstrengthened effective regulatorymechanisms for the protection ofconsumers, including aspects ofsustainable consumption? (Paragraph 51)

The Trade Practices Act 1974 (TPA) isAustralia’s primary consumer protection

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legislation. The TPA covers a range of unfairtrading practices and is mirrored bylegislation adopted by each of Australia’sState and Territory governments.

The consumer protection provisions of theTPA are contained in Part IVA(unconscionable conduct), Part IVB(framework for industry codes of conduct),Part V (consumer protection), Part VA(liability of manufacturers and suppliers ofdefective goods) and Part VB (priceexploitation).

Recently, the TPA was amended (TradePractices Amendment Act 2000) to improvethe way the Act delivers protection toAustralian small businesses and consumers.The amendment has not changed thesubstantive legal rights or obligations of anyperson, but has ensured that the enforcementand remedy provisions of the TPA will remainrelevant in Australia’s current economic andsocial environment.

The Australian Securities and InvestmentsCommission Act 2001 provides equivalentprotection for consumers in the financialsector through provisions similar to thosecontained in Parts IVA and V of the TPA.

In relation to aspects of consumer protectionand sustainable consumption, Australiaactively participates in international fora, suchas the OECD Committee on Consumer Policy(CCP). The past work of the CCP has includedconsideration of issues relating to theenvironment and sustainable consumption.This issue is also listed on the future workprogramme of the CCP.

Does your government have in placeeconomic measures (e.g. taxes, subsidies)that promote sustainable consumption?(Paragraph 52)

Australia employs a range of economicmeasures to promote more sustainableconsumption. Some examples are:

• increase excise tax on leaded petrol (leadedpetrol has been prohibited altogether since1 January 2002);

• $A200 levy on Sydney car park spaces(encouraging use of public transport or carpooling);

• bridge and road tolls (as above);

• making CNG excise-free (encouraging useof natural gas vehicles);

• State government rebates for energy-efficient homes;

• local council rebates on water-efficienttoilets and showerheads;

• State government grants for installation ofsolar water heaters; and

• charges for waste collection and use oflandfill sites.

One recent example (in more detail) relates towaste oil. In 2001 the Federal Governmentintroduced product stewardship arrangementsfor waste oil, to encourage better managementand economic recycling. A tax of 5 cents perlitre has been collected on base lubricating oilssince 1 January 2001. The revenue is used topay volumetric benefits to oil recyclers asincentives to collect and recycle more wasteoil. In addition, an industry transitionalassistance fund of $A60 million is beingprovided by the Government over a four-yearperiod. This funding is designed to acceleratethe uptake of waste oil from urban and ruralAustralia, facilitate the transition of theindustry and the community to productstewardship arrangements, and addressspecial difficulties with recovering andmanaging waste oil in remote parts ofAustralia.

Does your government provide publicinformation (for example, statistics,indicators, databases) that measuresprogress towards sustainableconsumption? (Paragraph 53)

Australia’s official statistical organisation, theAustralian Bureau of Statistics, regularlyundertakes surveys of environmentalbehaviour and practices in Australianhouseholds. For example, in March 2001, asupplementary survey run in association with


the Monthly Population Survey soughtinformation on the use of environmentally-friendly products, and fertilisers andpesticides/weedkillers in Australianhouseholds, and on household water use andconservation.

In 2002 an Australia-wide survey of householdenergy use and conservation will beundertaken, and for 2003, a survey ofhousehold waste management, transport useand vehicle ownership is planned.Stakeholders and interested parties are beingencouraged to participate in drafting thequestionnaires.

The results of these surveys are made publiclyavailable.

Does your government encourage theimpartial environmental testing ofproducts? (Paragraph 47)

In 1991 the Federal Government initiated aneco-labelling programme, EnvironmentalChoice Australia. The programme’s aims wereto verify environmental claims made bymanufacturers and to ensure that producersand consumers were adequately informed ofthe environmental impacts of products andservices. Lack of interest by industry inparticipating in the scheme meant that it neverbecame self-funding. Lack of resourcesprecluded adequate promotion of theprogramme and therefore consumer awarenessof it was not high. The programme ceasedoperation in 1993.

Since then, the Government has relied on theTrade Practices Act 1974 to ensure thatenvironmental claims made by companies areaccurate and not misleading for consumers.

Federal and State governments haveparticipated in the establishment of energy,fuel and water conservation eco-labellingsystems, as follows.

• A mandatory Energy Rating System appliesto all electrical appliances and to gas roomheaters, ducted heating systems and waterheaters. The Energy Rating Label, firstintroduced in 1986, has two main features:the star rating gives a quick comparative

assessment of the model’s energy efficiency(measured in accordance with AustralianStandards); and the comparative energyconsumption provides an estimate of theannual energy consumption of the appliancebased on the tested energy consumptionand information on the typical use of theappliance in the home.

• Following extensive negotiations betweengovernment and industry, the EnergyRating Label was revised in October 2000,resulting in more rigorous measurement ofenergy efficiency.

• The Water Services Association of Australia,with the involvement of governments, has aNational Water Conservation LabellingScheme to provide consumers withinformation on the water efficiency ofappliances such as washing machines,dishwashers, toilet suites and taps. Productswith such labels must have been tested byan independent approved laboratory forboth water efficiency and for conformity tothe relevant Australian Standard forperformance. The test results are submittedto Quality Assurance Services, a subsidiaryof Standards Australia, which then awardsthe appropriate Water Conservation Label.Water conservation labelling is notmandatory, but most manufacturers nowparticipate in the scheme.

• Motor vehicle manufacturers must displayfuel consumption labels on all new vehiclesup to 2.7 tonnes. The label indicates theaverage consumption in litres/100km,allowing the consumer to compare differentmakes and models.

• The Federal Government is currentlyworking on formulating a position on theissue of verification of environmentaltechnologies. Australia has established adomestic inter-governmental framework forconsidering environmental verification oftechnologies, as well as being involved ininternational discussion of this issue.

• In addition to the above, environmentaltesting is undertaken by the AustralianConsumers’ Association (ACA), anindependent, non-profit educational and

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consumer-oriented product testing centrefunded by member subscriptions. ACAundertakes testing in its Research and TestCentre laboratories, which have beenaccredited by the National Association ofTesting Laboratories (NATA). ACAtechnical experts sit on national andinternational standards committees. TheResearch and Test Centre also undertakesproduct testing for internationalgovernments, Australian regulatoryauthorities and industry.

Does your government promote researchon consumer behaviour (related toenvironmental damage) in order to identifyways to make consumption patterns moresustainable? (Paragraph 55)

The Australian Bureau of Statistics (ABS)undertakes research and analysis ofenvironmental and energy issues based onABS and non-ABS data. The time series,Environmental issues: People’s views andpractices, provides valuable information onhousehold consumption patterns related towater, energy, transport and waste.

Note that through the United Nation’s ESCAPprogramme, ABS officers have assisteddeveloping countries in the Asia-Pacificregion with identifying, collecting, processing,analysing and utilising environmental dataneeded for formulating environmental policiesand programmes.

Has your government introduced‘sustainable practices’ in its ownoperations (for example, greenprocurement, recycling schemes)?(Paragraph 54)

In May 2001 the Government encouraged allFederal agencies to develop an EnvironmentManagement System (EMS) by December 2002(allowing for agencies not to proceed if theycan demonstrate it is not cost-effective to doso), and certify at least one major site byDecember 2003 against ISO 14001 orequivalent. The Government also encouragedagencies to join the Australian GreenhouseChallenge Programme, aimed at reducinggreenhouse gas emissions.

Federal agencies have annual reportingobligations that require documentation of theeffect of their actions and policies on theenvironment, steps taken to minimise theimpact, and mechanisms to increase theeffectiveness of mitigating measures. Agenciesare also required to meet specific energyintensity targets and to report to Parliamentannually on their energy consumption.

Finally, all Australian governments haveendorsed the National Government WasteReduction and Purchasing Guidelines, whichcommits them to work towards agreed wasteminimisation targets and implementpurchasing policies for recycled goods. Othertools are presently being developed toencourage more sustainable procurement byFederal agencies, and these will be includedon the Sustainable Government Websitewww.ea.gov.au/industry/sustainable/greening-govt/index.html.

To help agencies meet these obligations, EAhas developed a model EMS which agenciescan adapt to their specific requirements. TheModel EMS incorporates detailed guidancenotes and an electronic procedures manualinto which agencies can enter agency-specificinformation. Tailored training is being offeredin 2002 to assist officers in developing andimplementing agency EMSs. EA has alsodeveloped generic tender documents, withclauses requiring tenderers to considerenvironmental impacts and whole-of-life costsin developing bids.

The green office guide, an initiative of Federal,state and territory governments, was releasedlate last year. It provides a checklist anddetailed ‘green’ analyses of goods and servicesmost frequently purchased by governmentagencies.

Contact

Ms Kerry SmithSustainable Industries BranchGPO Box 787Canberra ACT 2601Australia

E-mail: [email protected]


Brazil

Brazil has started to implement policies in-line with all of the requirements of the UNGuidelines.

The Ministry of Environment acknowledgedthe existence of the Guidelines byconsulting the UN website. The Ministryconsiders them as an important instrumentfor all stakeholders in divulging andimplementing sustainable consumptionpatterns.

The Government believes that Section G of theGuidelines should be more flexible so as tobetter consider social and cultural differencesin developing countries, mainly regardingspecific technical and technological capacities.

The Ministry of Environment has developedsome initiatives focused on sustainableconsumption.

• The Environmental Agenda for PublicAdministration programme to induce, on avoluntary basis, the adoption ofmanagement models that correct andminimise negative impacts of administrativework (for example, recycling paper, wateruse).

• The Guidelines on Good Practices ofSustainable Consumption, an electronicguide with tips of sustainable behaviourand attitudes for consumers.

The entities below are responsible for specificareas of formulation of policies regardingconsumer rights and clean technologies:

• Ministry of Justice, Department for theProtection of Consumer Rights

• Ministry of Development, Industry and Trade

• Ministry of Planning

• Ministry of Environment




The Brazilian government encourages thegreen labelling of products, on a voluntarybasis, and in accordance with internationallyagreed procedures and standards. Forexample, the Ministry of Environmentencourages the green labelling of forestryproducts. Another initiative encouraged by theGovernment is the establishment of CleanTechnology Centres around the country.

Does your government have in placenational recycling schemes? (Paragraph 45)

The Brazilian government supports privateinitiatives being implemented on national,state and local levels, concerning recyclingschemes for paper products, aluminum cansand glass that have an important positiveimpact on the quality of life of unemployed,poor communities.


The Brazilian government has strengthenedthe regulatory mechanisms and the role of theNational System of Consumer Protection,responsible for the formulation, co-ordinationand implementation of the national policy forthe protection and safeguarding of consumerrights.

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Does your government have in placeeconomic measures (for example, taxes,subsidies) that promote sustainableconsumption? (Paragraph 52)

The Water Resources Act (1997) establishedmechanisms for payment of waterconsumption royalties for several uses, whichare being implemented in some States.

Does your government provide publicinformation (for example, statistics,indicators or databases) that measuresprogress towards sustainableconsumption? (Paragraph 53)

The Ministry of Environment is developing acollaborative effort with the Brazilian Instituteof Geography and Statistics aiming atformulating, monitoring and making publicenvironmental indicators, in some casesconnected to consumption sustainability.


The National Institute of Metrology andseveral non-governmental organisations thatwork with consumer rights have implemented,with encouragement from the Government,independent product testing anddisseminating the results through the massmedia.


In 1996, 1998 and 2002, the Ministry ofEnvironment promoted national surveyscalled ‘What do Brazilians think about theenvironment’, which included consumptionpattern concerns.

Has your government introduced‘sustainable practices’ in its ownoperations? (for example, greenprocurement or recycling schemes)(Paragraph 54)

The Government has implemented theEnvironmental Agenda for PublicAdministration programme, which isdesigned to induce, on a voluntary basis, theadoption of management models that correctand minimise negative impacts ofadministrative work (for example, recyclingpaper, water use).

Contact

Antonio F. C. MelloSpecial Advisor for International AffairsEsplanada dos Ministérios, Bloco B,Sala 53570: 068-900Brasilia DFBrazil

Tel: +(061) 317 1146E-mail: [email protected]


Chile

Chile is among the leaders in the LatinAmerica/Caribbean region in implementingsustainable consumption-related policiesand initiatives.

The National Consumer Protection Agency(SERNAC), a partner of both CI and UNEPon recent projects, is actively involved inbuilding partnerships and promotingsustainable consumption policies.However, the agency is interested inreceiving training in order to further theimplementation process of the UNGuidelines in its country.

The expanded UN Guidelines for ConsumerProtection are well known to the Chileangovernment and the Chilean NationalConsumer Protection Agency (SERNAC)works with them on a day-to-day basis. Chilewas represented at one of the preparatorymeetings (Sao Paulo, 1998) dealing with theexpansion of the UN Consumer Guidelines toinclude elements on sustainable consumption.

SERNAC is an active member of the LatinAmerican and Carribean SustainableConsumption Network, which was initiatedafter the joint UNEP/CI/CDG workshop onsustainable consumption, held in Sao Paulo inNovember 2001.

From the point of view of the country’sconsumer protection agency, the sustainableconsumption section of the Guidelines isvaluable. However, it could be improved inthree main areas.

• It could emphasise the need to analyse themacroeconomic impact in order to make thenecessary balance between both challenges.Without this balance, it is very difficult topromote sustainable consumption.

• It could be more explicit in emphasising theneed to promote education for sustainableconsumption, as a principal instrument inconsolidating change.

• It is necessary to clarify the strategicobjectives that lie behind each of theGuidelines, to make the implementationprocess easier.

SERNAC has organised campaigns to promotesustainable consumption in the basic services,domestic waste management, and byhighlighting environmental impacts ofconsumer decisions.

A number of agencies and ministries areinvolved in promoting changes inconsumption patterns, including the NationalEnvironment Agency, the National Council forCleaner Production and the National EnergyCommission.

SERNAC has a close on-going workingrelationship with CI’s Regional Office for LatinAmerica/Caribbean and is also an affiliatemember of CI.

SERNAC maintains solid relationships withconsumer organisations throughout thecountry, although they have yet to incorporatesustainability issues into the discussions.However, they have been working with otherstate agencies, such as the State EnvironmentalCommission (CONAMA), with whom they areplanning on developing an eco-labellingscheme. SERNAC and CONAMA have alsoinitiated a training programme for youngpeople called Environmental Pioneers. Theprogramme aims at training 40, 000environmental monitors all over the country,on various aspects, including sustainableconsumption.

Another SERNAC initiative sees themcombining with the Ministry of Education fortraining teachers about consumer protectionissues. The curriculum includes a number oftopics on sustainable consumption.



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Has your government encouraged thedevelopment and use of environmentallysound products and services and newtechnologies that take into considerationfull life cycle impacts? (Paragraphs 45, 50)

The National Environment Agency, theNational Council for Cleaner Production andthe Ministry for Health are conducting workin this area. SERNAC and the National EnergyCommission recently published an analysis ofgasoline consumption and its environmentalimpacts.

SERNAC and the National EnvironmentAgency are currently developing a Type IIeco-labelling scheme.

The state agency, CORFO, a division of theMinistry of Economy, has recently launched aprogramme on cleaner production. This five-year programme will involve all stakeholders,while the challenge remains to co-ordinate itwith other existing initiatives.


Although the country does have in place anumber of recycling schemes, further co-ordination between the various agenciesinvolved could provide future benefits.

SERNAC has been involved in promotingrecycling schemes through educationprogrammes for teachers.


The Chilean Consumer Protection Act statesthat consumers have as rights ‘the protectionof health and the environment and safe accessto goods and services’. The government isresponsible for informing, educating andprotecting consumers. Elements of sustainableconsumption, such as the punishment ofmisleading environmental claims, areincluded in the Act.


SERNAC promotes research on the impacts ofconsumer choices on the environment. It isinterested in how to sensitise consumers aboutthe related impacts on the environment oftheir purchasing decisions. The agency wouldalso like support in providing accurateinformation for consumers.

SERNAC accepts that one of the mainpriorities for changing consumption patternsis to provide consumers with accurateinformation on the impacts of theirconsumption behaviour. If this can beachieved, it would help stimulate the desirefor environmentally-sound products.

Support

Our government would welcome thefollowing support:

• promotional material (for examplebrochures, posters);

• easy-to-understand training guides ortoolkits;

• more information on the topic ofsustainable consumption;

• more high-level coverage of sustainableconsumption and the UN Guidelines (forexample, at WSSD);

• opportunities to attend/organiseinternational meetings on the topic ofsustainable consumption and the UNGuidelines;

• case studies from countries that havesuccessfully implemented the Guidelines;

• involvement/creation of support networks,web resources etc.; and

• an international convention on sustainableconsumption (a binding or voluntaryinternational agreement).


Contact

Ms. Alejandra ArratiaDirector, Consumer EducationNational Consumer Protection Agency(SERNAC)Teatinos 120, Primer PisoSantiagoChile

Tel: +(56) 2 3519570Fax: +(56) 2 6725839E-mail: [email protected]

China

China is a developing country with a hugepopulation and limited per capitaresources. So it is most important forChina to advance sustainable consumptionand ensure sustainable development.

China’s Consumer Association has put‘green consumption’ on its agenda as themain theme of the current century toadvocate and promote sustainableconsumption among Chinese consumers.

Following the Rio Declaration and Agenda 21issued at the Conference on Environment andDevelopment (UNCED) in Brazil in 1992,countries began to formulate their ownAgenda 21s. In 1994 the Chinese governmentpublished its Agenda 21, in which Chapter 7specifically focuses on issues concerningsustainable consumption. This was followedby developments in the following areas in1996: certification work concerning ISO 14000and products complying with theenvironmental protection standards, and thepromotion of, for example, green and organicfoods. Our overall impression of the UNGuidelines is that they emphasise and clearlyspecify the role of government in this issue.

While ensuring the attainment of better livingstandards for the Chinese people, the aim ofsustainable consumption in China is to:

• keep the per capita consumption of energyand raw and processed materials at thecurrent level;

• reduce the environmental pollution bypernicious wastes;

• improve the consumption structure of theresidents;

• narrow the gap between the rich and thepoor; and

• pursue common prosperity.

The principal steps to be taken in this direction are:

• to develop social productive forces;41


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• build up a low-consumption, high-efficiency, low-pollution or pollution-freeproduction system;

• multiply, diversify and improve the meansof livelihood; and

• initiate the product mix in keeping with therational consumption structure, anddevelop the green industry.

The Law on the Protection of ConsumerRights and Interests also promotes sustainableconsumption through publicity and educationof the community at large.

To push ahead with sustainable consumption,China instituted the environmental labellingsystem in 1993 and, in May 1994, formed theChinese Committee for Certifying Productswith Environmental Markings. At presentenvironmental-marking certifications havebeen given to over 40 kinds of products in 12categories. These products mainly includechloroflurocarbon-free products, harmless silkproducts, harmless paints, lead-free petrol,recycled toilet paper, mercury-free andcadmium-free batteries, fluorine-freerefrigerators, mercury-free dry cell batteriesand phosphorus-free detergent. In recentyears, the certification of energy-savingproducts has been in full swing in China. Atpresent, 13 kinds of energy-saving productshave been certified.

China has made comparative experiments oncommodities with definite aims and made theresults of these experiments known to thepublic regularly at new briefings. Theseconsumer goods include foodstuffs, cosmetics,refurbishing materials, telecoms equipment,clothing, daily-use small commodities andhousehold electrical appliances.

The comparative experiments involvecarbonic acid beverages with artificialsweetening and antiseptic, small foodstuffswith six kinds of synthetic additives,reinforced composite wooden flooring anddetergents. These experiments have exertedgreat social impacts and aroused widespreadinterest among consumers. In the experiments,China’s Consumer Association has been veryconcerned about the assessment of products’

effects on the environment and introduced theconcept of ‘green testing’ (for example, testingwhether the products would yield perniciousmaterials to pollute the environment andharm the users’ health; whether excessivewaste is produced after their use; and whetherthe products can save energy). When acomparative experiment is carried out on ahousehold electrical appliance, energy savingis an important index for the assessment ofthe product.

Energy-saving levels and power consumptionare tested and compared in the comparativeexperiments on household electricalappliances, including air-conditioners, TVs,DVD players and vacuum cleaners, advisingthe consumers to opt for the low power-consuming and high-efficiency products, aslong as the requirements for use are met.

China’s Consumer Association is going tolaunch experiments on energy-saving lampsto help consumers buy genuine energy-saving, good quality and reasonably pricedlamps, and to avoid poor-quality and fakeenergy-saving lamps to spread the use ofenergy-saving lamps around the country.

On 15 March 2001, a ‘Green Consumption’campaign was launched by China’s ConsumerAssociation in collaboration with other relatedgovernment departments. The first ChineseForum on Sustainable Consumption was heldin Beijing in May 2002.

The campaign involved millions of ‘green’volunteers. It was jointly planned by China’sConsumer Association and Beijing CulturalCenter of Global Environment. China’sConsumer Association gave a news briefing inthe News Briefing Hall at Xinhua NewsAgency in Beijing. The ‘Investigation andPromise’ cards were issued by six nationalnewspapers and periodicals in Beijing, 16 localnewspapers and periodicals and at least fourwebsites. Ten million ‘Investigation andPromise’ cards were issued by organisationssuch as China’s Consumer Association. Thetwo-tier sampling statistic method was usedin the investigation. The result was that over94% of people who had filled out the cardsmade a promise to support the questionsraised about green consumption.


Major operations in co-operation with themass media include:

• A public welfare advertising contest taking‘green consumption’ as the main theme wasorganised in 2001, together with the media.China’s Consumer Association togetherwith China Advertising Association gleanedfrom all fields over 600 pieces of visual,broadcasting and printed work. Theselection through public appraisal of theworks was announced in August 2001, andthe awarded works were published in abook form and issued to the public to widenthe knowledge of sustainable consumptionand green consumption in particular.

• Energetically aking part in the activities ofbroadcasting, TV and other news media.Spreading the viewpoints of China’sConsumer Association through setting upspecial working groups, taking part inactivities and discussions on consumptionhot issues, explaining doubts and questionsraised by consumers, and giving a guide toconsumption and advocating sustainableconsumption among consumers.




China has introduced certification standardsfor environmentally-sound products since1996. Today, more than 1,400 products in 44categories, including automobiles and paintingmaterials, have passed the certificationprocess.


There are waste-recycling organisations allover the country. Standards have still to beprogressively established to govern therecycling process, mechanism and pricing.


China has set up consumer associations allover the country, the functions and structuresof which are underpinned by law andprovided with suitable manpower. Sustainableconsumption is being promoted nationwide toenhance public awareness of this concept.

Does your government have in placeeconomic measures (for example, taxes orsubsidies) that promote sustainableconsumption? (Paragraph 52)

In 2001, the Finance Bureau and the TaxBureau of China announced a 30% sales taxreduction until 2004 for light vehicles thatcould meet the European emission standard.


For example, in view of the wide publicconcern over pollution caused by householdinterior renovations and whether paintingmaterials and range hoods (for kitchen use)are environmentally friendly, the Governmenthas laid down standards in this regard tofacilitate green testing. The general public hasresponded positively to such initiatives.

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Contacts

Li ChuhuaProject OfficerForeign AffairsChina Consumers Association (CCA)

Fax: +(86) 10 68359334E-mail: [email protected]

Ms. Chen ShangqinDirectorDepartment of TechnologyState Administration of EnvironmentalProtection People’s Republic of China

Tel: +(86) 10 66151915Fax: +(86) 10 66159819

Germany

Germany, as one of the leadinggovernments in the drive to implement theUN Guidelines, has recently embarked on anew course, designed to internalisesustainable consumption into thecountry’s mainstream thinking.

Germany has identified the need to clarifythe link between consumer protection andsustainable consumption, and is calling forincreased co-operation, communicationand capacity-building.

Between 1996 and 2000, CI was co-sponsoredby the Federal Ministry of Environment,Nature Protection and Nuclear Safety and theFederal Environment Agency to integrate theissue of sustainable consumption within theirinternational activities of consumer protection.Within this context, Germany was activelyinvolved in the discussion on the modificationof the UN Guidelines.

The inclusion of Section G was an importantstep to reorient consumer protection policiestowards the new paradigm of sustainability,and specify cross-sector activities betweenconsumer protection policies and other policyfields, like environmental policy. In thegovernment’s opinion, Section G reflects avery broad approach to the issue ofsustainable consumption. This has a positiveeffect, because different activities and policymeasurements can thus be summarised underthis one umbrella.

At the moment, it is not necessary to modifySection G of the Guidelines. They are animportant instrument for putting the issue ofsustainable consumption on the internationalpolitical agenda.

The advancement of sustainable consumptionand production patterns is a central field ofactivity for German environmental policy. It isbecoming a more and more important aspectof the discourse on creating a policy ofsustainability. The discussion about theadvancement of sustainable consumption andproduction patterns in Germany shows thatbeneath creating able conditions throughlegislation, the strengthening of self-


responsibility for those who are directlydealing with sustainable consumption andproduction patterns, has to be seen as a centralrecommendation for the German policy ofsustainability. Specifically, the advancement ofsupply-side approaches and instruments ofinformation (for example, environmentmanagement systems, eco-design andenvironmental controlling) and consumption-orientated approaches and instruments ofinformation (for example, eco-labels, consumerprotection and education, environmentalconsultancy and education for sustainabledevelopment) have a high priority.

In the past, widespread and diverse actorsfrom government, business and civil societyhave undertaken numerous activities, projects,initiatives and measures in this area.

In Germany, sustainable consumption as across-sector field of policy lies within theresponsibility of different ministries (forexample, the Ministry of Environment, theMinistry of Transportation, the Ministry ofResearch, the Ministry of Economy, theMinistry of Consumer Protection andAgriculture, and the Ministry of Developmentand Economic Co-operation). Therefore, thereis no one point responsible for theimplementation or the compliance monitoringof the Guidelines at this stage.

In the past, activities to promote sustainableconsumption were launched by severalgovernment institutions at national, regionaland local levels. For example, the FederalMinistry of Environment, Nature Conservationand Nuclear Safety has launched variousactivities and projects that could besummarised into five conceptual elements:

• sustainable consumption as a field ofapplied socio-ecological research;

• initiating a nation-wide stakeholder dialogto promote sustainable consumption;

• sustainable consumption as a challenge forenvironmental communication;

• instruments/measurements to promotesustainable consumption (for example, as anelement of Integrated Product Policy); and

• sustainable consumption and capacity-building/knowledge transfer.

The Federal Ministry of Education andResearch has launched various programmes tostimulate research on the different technical,socio-ecological, socio-economical and culturalaspects of sustainable consumption andrelated innovations (for example, housing,food and mobility). The Federal Ministry ofEducation and Research is launching researchprogrammes on strategies for product use,socio-ecological transformation andinstitutional innovations for sustainablebusiness.

Awareness raising through differentinstruments of environmental communicationplays an important role within the activities ofenvironmental policy. Therefore, the FederalMinistry of Environment, in co-operation withother government bodies, has launched a widespectrum of activities, focusing on differentaspects of sustainable consumption (forexample, energy saving/standby campaign,green energy, recycling, mobility, tourism andclimate change) and targets groups (forexample, youth, schools and home owners),using the whole spectrum of media.

Furthermore, the Federal Ministry ofEnvironment and the Federal EnvironmentAgency have launched projects to improve therole of environmental communicationstrategies within the field of sustainableconsumption and to focus on co-operationwith relevant stakeholders (for example,industry, retailers and consumer protection) inorder to bring the issue of sustainableconsumption into the public realm (forexample, through advertising).




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The German government has establishedvarious instruments and measurements in thefield of production and product-orientatedenvironmental policy. Besides supportingcompanies to develop new technologies andproducts, the activities of the Federal Ministryof Environment, Nature Conservation andNuclear Safety focussed mainly on thedevelopment and widespread application ofthe various instruments and methods of anIntegrated Product Policy (for example,environmental management systems, designfor environment, life cycle assessment and lifecycle management, eco-labelling andenvironmental/sustainability reporting).


Based on the 1996 restructured regulation onwaste policy, several recycling schemes wereestablished (for example, organic waste, cars,batteries, packaging and building materials).Besides glass and paper, where recyclingquotas are high, it is the objective of the wastepolicy to reduce waste through waste-minimisation strategies for different sectorsand to improve quotas for recycling. A verywell known recycling scheme is the Green Dot(Grüner Punkt) that operates by recyclingdifferent packaging materials.

In the future, it is proposed to introducerecycling schemes for electrical equipmentand appliances (WEEE-Directive). To increasepurchasing of recycled products (privateconsumer and public procurement), a range ofrecycled products is integrated in the BlueAngel scheme (see www.blauer-engel.de fordetails).


There is quite a wide spectrum of regulatorymechanisms in Germany for the protection ofconsumers, related to the different ecological,health and technical aspects (for example,related to chemical substances in products,safety standards or environmental aspects of

products). Most of the regulatory mechanismsare primarily directed to protect the consumer(environmental risks, health risks) and toensure high technical standards and toincrease overall resource efficiency ofproducts. As research shows that regulatoryinstruments have only an indirect impact onconsumption patterns and do not significantlyinfluence socio-economical behaviour andsocio-cultural orientations of the consumer,voluntary schemes (complementaryinstruments) such as eco-labelling (forexample, the Blue Angel scheme) areconsidered a better instrument to safeguardhigh standards of consumer protection andsustainable consumption.


Economic instruments have played a crucialrole in the implementation of environmentalpolicies in the past. Important elements hereinclude the establishment and implementationof an ecological finance and tax reformpackage in Germany.

Since 1998, the German government has beenintroducing a five-step eco-tax on mineral oiland other energy materials to reduce energyconsumption and resource depletion. At themoment, it is not widely documented whateffects on consumption patterns economicmeasures will have. Recent research hasidentified that the existing economicinstruments have only a limited influenceover consumption levels in Germany.


In co-operation with the Federal StatisticalAgency, the Federal Environmental Agency iscollecting, analysing and aggregating relevantenvironmental data of different aspects ofsustainable consumption on a permanent basis(for example, energy consumption, waste,water consumption, mobility and tourism).The information is made publicly available.



The major institution of product testing inGermany is the Stiftung Warentest, which wasestablished in 1964 as an independent body.The Stiftung Warentest has a wide range ofservices in the field of product testing. Besidesproduct performance, technical aspects, healthaspects and environmental aspects play animportant role in the testing procedures ofproducts and services. The results of thetesting are distributed widely throughpublications and the Internet and arerecognised as highly reputable by the public.


As stated above, the German Governmentlaunched various research programmes thatare directly or indirectly related to the differenteconomic, social, technological and culturalaspects of sustainable production andconsumption. As a cornerstone, the FederalMinistry of Environment and FederalEnvironmental Agency launched an R&Dproject (1997-1999) that focused on the variousaspects of sustainable consumption:

• instruments;

• social science aspects;

• indicators; and

• strategic dialog with stakeholders.

Has your government introduced‘sustainable practices’ in its ownoperations (for example, greenprocurement or recycling schemes)?(Paragraph 54)

The Federal Ministry of Environment seesgreen public procurement as an importantelement to stimulate sustainable consumptionpractises within government institutions.Several projects were initiated to developrelevant instruments (like EMS, purchasing

guidelines and eco-labelling) and todisseminate information on how greenprocurement and other instruments could beimplemented (Handbuch umweltfreundlicheBeschaffung, Handbuch Umweltcontrolling inder öffentlichen Hand). The Federal Ministryof Environment and the Federal EnvironmentAgency are now supporting a project to buildup an Internet platform on green publicprocurement (www.beschaffung-info.de).

The way forward: Going beyond the status quo

In Germany, the experiences to promotesustainable production and consumptionpatterns has demonstrated that several drivingforces and general factors should beconsidered as important:

• development of environmentally-soundproducts;

• environmental transformation of marketswithin sub-sectors;

• stabilisation of sustainable patterns ofconsumption within niches;

• increased differentiation on the supply side;

• increase of ‘rebound effects’;

• establishment of different patterns ofsustainable consumption within differentareas of consumption; and

• counter-productive influences throughsocietal, economical and political mega-trends.

As empirical research shows, the followingaspects should be considered when evaluatingthe past implementation of existinginstruments to promote sustainable patterns ofproduction and consumption in Germany:

• variety of social and political contexts;

• variety of involved players andstakeholders;

• variety of measurements and instruments;

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• high complexity of interlinked factors;

• low grade of co-ordinated action;

• limited manoeuvrability throughgovernmental activities; and

• the potential of self-organising processes isnot very well developed.

At the moment, the situation in Germanycould be characterised as paradoxical. On oneside, a variety of programmes, measurements,instruments and activities were initiated tostimulate and enhance awareness and actiontowards sustainable production andconsumption patterns more or lesssuccessfully. But on the other hand, actualtrends in consumption show that theseactivities produce no results in the decouplingof overall resource depletion and the growthof household consumption levels.

The major obstacle is that the meanings andfar-reaching challenges of sustainable patternsof production and consumption in Germanyare not yet well understood (especially byconsumers). Furthermore, the actual debate inGermany on sustainability in general – and onsustainable patterns of production andconsumption specifically – is highly polarised.

This means that, on the one hand, there is ascientifically-orientated discussion of thecarrying capacities of ecosystems and thelimits of growth that is concerned withprocesses consisting of material and energyflows, that can be (ideally) defined inquantitative terms. On the other hand, adebate is taking place concerning the necessityof changes in values and ways of living in ourculture and society that is concerned withsymbolic cultural contexts.

This polarity of the ecological discourse isparticularly true for the topic of consumption.On the one side, there is a discussion focusedon specific measures, and on the other side, ageneral discussion on orientation. One sideleans towards concrete projects and actions;the other is centred around questionsregarding the possibilities and starting pointsfor reorientation of social values andeconomic practice, including agreement

among different agents on respectiveviewpoints and ideas. As far as strategies andmeasures for sustainable consumption areconcerned, however, both areas – thosefocused on measures and those concernedwith orientation – should be seen ascomplementary. Apart from this lack ofenvironmental communication to anchor abroad understanding of sustainability (and therelated visions and practical implications)within society, there is also a wide spectrum ofpractical barriers to establish sustainablepatterns of production and consumptionwithin society.

Information barriersThese can take the form of objectivehindrances and situational obstacles, such asthe absence of precise information, anddisputes among experts on isolated questions,that cause unease among consumers, or thelack of (perceptible) alternative action orpossibilities of disposal.

Behavioural barriersNegative experiences or assumptions aboutnegative effects of environmentally-soundbehaviour in certain circumstances preventjust such behaviour, for example, when theresult is greater expenditure of time, higherprices and more effort.

Perception barriersHere, a failing perception of negative changesin the environment and a low assessment ofindividual contributions make themselves felt.

Emotional barriersFears can lead to defensiveness, in the form ofsuppression and feelings of powerlessness, forexample.

Social barriersCertain social conventions, such as theparticular importance of cars and clothing forimage cultivation, can act as obstacles toecologically-sound consumer behaviour.

The way forward: promoting social innovations for sustainable consumption

Within the actual debate on sustainability inGermany, it has become more evident that the


issue of sustainable production andconsumption should be seen as a long-termprocess of social innovation and culturalreorientation, because the idea emerged thatan ‘ecologisation’ of patterns of productionand consumption could also be seen as a newstage in the modernisation of societies andcultures. Here, it became clear that politicalobjectives were required for the whole ofsociety, and that it cannot simply be a questionof cultivating a particular ‘ecological lifestyle’in society niches.

Therefore, the challenge we face is thequestion of how we can reorient existinglifestyles toward sustainability, and findpractical starting points for concrete politicalaction to promote the relevant innovations. Inorder to manage such demanding innovationin dealing with production and consumption,it is crucial to facilitate ‘social innovations’ thathave to be developed in the interplay betweendifferent agents. This concerns among otherthings, market supply and consumerbehaviour as well as the development ofgeneral conditions and the appropriateinfrastructure. But social innovations inparticular receive little attention in connectionwith reorientation at the moment, comparedwith technical and organisational innovations.Here, social innovations are important inovercoming the ‘diffusion barriers’ associatedwith products and services that are new fromthe ecological viewpoint.

Recent research has identified a number ofexamples that are appropriate to the requiredsocial innovations, such as self-organisednetworks for new forms of product use andinformal exchange markets. The so-called‘pioneers’ could be identified as goodexamples of the potential of civil society inGermany to realise the socio-ecologicaltransformation associated with the challengeof sustainability.

Besides investigating and supporting thoseinitiatives, it is important for further policydevelopment to enhance the self-organisationcapacities (in structural, managerial andfinancial terms) and to support the diffusion ofthose models into society, through strategicalliances, co-operation and communication.Here, shaping a more consistent and

integrated policy framework to promotesustainable production and consumptionpatterns should be seen as crucial.

Integrated product policy as a new strategic approach toward sustainable production and consumption in Germany

Considering the evolution of environmentalpolicy concepts in the past three decades,sustainability means also a new understandingof policy decision-making and thedevelopment of new patterns of societalproblem-solving (new models of governance).Within this understanding, creating andshaping a policy for sustainability implies newstrategic alliances and co-operation betweenstakeholders and players of the political andgovernmental system, and economic and civilsociety to find new ways to influenceconsumer behaviour. Therefore, theimplementation of a policy for sustainabilitycould be seen as a process that requiresstronger efforts to stimulate multi-stakeholderintegration, and participation through co-operation and communication.

On the national and the European level, theissue of promoting sustainable production andconsumption patterns will be discussed moreand more within the new framework conceptof an integrated product policy (IPP).Generally, IPP means a governmental policythat promotes the permanent environmentalimprovement of products and services alongthe whole life cycle, reducing overall resourcedepletion, and establishing new markets forsustainable products and services. Thechallenge of an IPP is to stimulate target-oriented innovations, either on the productionside or the consumption side of products. Themajor bottleneck to further success of an IPPlies in the need for all market players to rise tothe challenge of creating and purchasingsustainable products. Therefore, strengtheningproducers’ and consumers’ capabilities andself-responsibilities to deal with this challengeshould be seen as an important task for thefuture. Apart from further development of theIPP-relevant instruments, complementaryactions have to focus on the stimulation of abroad public debate and alliances forinnovation.

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The role of multi-stakeholder dialogue and strategic alliances

Initiating multi-stakeholder dialogue andstrategic alliances are crucial in order to bringthe issue of sustainable production andconsumption forward, strategically andpractically. Apart from the integration of allplayers in an overall process of sustainability,the major objective of a multi-stakeholderdialogue is to build up a strategic frameworkfor co-operative action, considering thespecific conditions under which the differentplayers act. Here, the German Governmentsees the need to initiate and moderate suchstrategic approaches and to support theprocess of capacity-building. The actualdiscussion shows that strategic alliancesshould be first production and product-relatedand, second, on the consumption side, tostimulate consumer demand (purchasingbehaviour and preferences) and overall socio-cultural orientations.

A first attempt to initiate a national process ofunderstanding for the promotion ofsustainable consumption patterns was madein 1997, and was more thoroughly developedin 1998/1999. The results of the preparatoryactivities (for example, consultation withrelevant stakeholders, survey of stakeholderpositions) was the finalisation of a commonstrategic framework (memorandum ofunderstanding) for sustainable consumptionin Germany, which was finally discussed andadopted in the year 2000 by over 20 majorstakeholder groups (for example, industry,retailers, trade unions, churches, consumerprotection, environmental groups anddevelopment groups).

Further activities of the German Governmentare to continue with this national process ofunderstanding, and to stabilise this processthrough associated projects. In current andforthcoming phases, the Federal Ministry ofEnvironment and the Federal EnvironmentalAgency, in co-operation with relevantstakeholder groups, are investigating on theconcrete possibilities for practical co-operationand projects at the following cross-sections:

• sustainable consumption and integratedproduct policy;

• sustainable consumption and local Agenda21;

• sustainable consumption and consumerprotection;

• sustainable consumption and education forsustainable development; and

• sustainable consumption and knowledgetransfer.

To complement these, the FederalEnvironmental Agency also launched tworesearch projects focusing on specific aspectsof the process:

• sustainable consumption as an element ofintegrated product policy – development ofpractical guidelines for co-operation; and

• a feasibility study for the establishment ofan Internet-based information portal‘Sustainable living’.

It is envisaged that, in the next phase of thisprocess (November 2002 to October 2004) anational platform for sustainable consumptionprojects in the different fields will be built up.It will function as a ‘social organic web’ topromote the issue of sustainable productionand consumption within society through co-ordinated actions (to establish a ‘living cultureof sustainability’) and to organise the neededknowledge transfer between the involvedstakeholder groups and consumers.

Some other upcoming activities include:

• development of new concepts of product use;

• the role of fair trade products andsustainable consumption; and

• gender aspects of sustainable consumption.

Conclusion

As already stated, the broad approach ofSection G of the Guidelines to the issue ofsustainable consumption has a positive effect,because different activities and policymeasurements can be summarised under the


one umbrella. However, this broad approachdoes not reflect the perspective of consumerprotection in detail, nor does it cover thestrategies required by consumer protectioninstitutions for supporting sustainableconsumption.

Considering the international and nationaldebate on sustainable consumption, promotionof sustainable consumption needs a strongconceptual framework, in which the role ofconsumer protection activities is specified. Theongoing discussion on integrated productpolicy could be one of these conceptualframeworks, designed to integrate differentpolicy approaches (for example, supply side,demand side) and instruments.

Furthermore, a strong focus is needed toorganise the relevant stakeholder dialogues,because sustainable consumption cannot alonebe implemented by legislation, but should beseen as a process of co-operation,communication and capacity building. Here, aclearer consumer (protection) perspective onsustainable consumption in the future wouldbe advantageous. Ultimately, clarifying thelink between consumer protection andsustainable consumption is something that canbe more effectively achieved by formulatingmulti-stakeholder partnerships. The linkbetween national and internationalprogrammes and activities should be alsoclarified to identify fruitful co-operation forthe future (for example, with internationalorganisations such as UNEP and CI).

Contact

Mr. Christian LoeweFederal Environment AgencyP. O. Box 33 00 22 Bismarckplatz 114191 Berlin Germany

Tel: +(49) 30 8903 3025 Fax: +(49) 30 8903 3099E-mail: [email protected]

Japan

Although the Environment Ministry was notdirectly aware of the existence of thesustainable consumption section of the UNGuidelines, the government has madecommendable progress on a number ofpolicy fronts.

Japan is prepared to share their experienceof policy making in this area with otherinterested parties.

The government of Japan believes that the UNGuidelines are both easy to understand anduseful for sustainable consumption policymaking. The ideas displayed in the Guidelinesare useful in the sense that they clarify thenecessary policies required for promotingsustainable consumption patterns.

Based on the Law Concerning the Promotionof Procurement of Eco-Friendly Goods andServices by the State and Other Entities (Lawon Promoting Green Purchasing), which wasenacted in May 2000, the Ministry ofEnvironment has been providing informationon eco-labelling and other related issues.

The government has also been assistingactivities that encourage regional societies toorganise networks for green purchasing, andholding green purchasing seminars for localgovernments.

The Government participated in the Seminarto Improve the Environmental Performance ofPublic Procurement, organised by the OECDfrom 29-31 December 2001. The OECD Councilapproved a recommendation that membergovernments should embrace ‘green’procurement.

The government is willing to shareinformation on laws and regulations, and toprovide some practical examples on the lawsand regulations related to the green-purchasing scheme.

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The Law Concerning the Promotion ofProcurement of Eco-Friendly Goods andServices by the State and Other Entities (Lawon Promoting Green Purchasing) encouragesconsumers to consider environmental aspectsof products and services when purchasingthem. This Law is the first of its kind in theworld. Therefore, the government would liketo compile updated information on similarinitiatives outside Japan – information fromWTO (government procurement), OECDmeetings (policy on public procurement) andICLEI would be useful.

The law for promoting green purchasing tookeffect in April 2001. An objective behind thislaw is to create an information database andset up a network with local governments inorder to share good examples of promotingthe procurement of goods that have lowenvironmental impacts. Through thismechanism, the information will bedisseminated throughout the local community.

Work on life cycle impacts is carried out byother government agencies, such as theEnvironmental Association of Japan.


The Basic Law for Establishing the Recycling-based Society was enacted in June 2000. Thelaw aims to help create a ‘society with soundmaterial cycle’ through restrainingconsumption of natural resources andreducing environmental burden.

With the intent of strengthening recyclingactivities, the Waste Management and PublicCleansing Law was amended. The Japanese

government set out law enforcementguidelines within the first paragraph ofArticle 5-2 of the Waste Management andPublic Cleansing Law on 7 May 2001. Theseguidelines established the target amount ofwaste reduction for 2010 on the basis of theamount in 1997. Specifically, the governmentintends to reduce the amount of final disposalin 2010 to half of the level in 1997.

Several laws focussing on recycling wereamended or newly enacted last year [2000].Now recycling laws cover such items ascontainer and packaging, some householdelectrical appliances, construction materialsand food waste. The government isconsidering enacting an automobile recyclinglaw. Public information about some of theabove initiatives has been disseminatedthrough such resources as brochures,seminars, TV, radio, newspapers and websites.The government will promote efforts towardthe establishment of a ‘recycling-basedsociety’ through integrated operation of these laws.


Taking into consideration the InternationalOrganization for Standardization (ISO)standard (ISO 14020), the Government ispromoting eco-friendly labelling. TheJapanese Environmental Association hadplayed a key role in promoting the Eco Mark,which is the only Type I Eco label in Japan.

With reference to the Green Purchasing Law,the Fair Trade Commission will take actionagainst enterprises that commit fraud inrelation to false ‘eco-friendly’ claims.


The government provides tax incentives forautomobiles that demonstrate lowenvironmental impacts, such as electricvehicles, natural gas vehicles, methanol


vehicles and hybrid vehicles. Buyers of electricvehicles only pay 2.3% automobile acquisitiontax (a reduction of 2.7%) in contrast to thenormal purchasing tax of 5% (local tax).Furthermore there will be a 50% reduction inthe automobile property tax (local tax),effective for two years.

The taxation system also promotes the buyingof petrol (gasoline) cars and trucks as opposedto diesel cars and trucks because of the highnitrogen oxides and suspended particlematters emitted from diesel-powered vehicles,particularly in a urban areas.


The government has implemented a researchstudy on consumer behaviour in order tomeasure the progress of green purchasingactivities in households.

A sample of the findings include the following.

• 70% of respondents stated that citizensshould be educated in the importance of theenvironment, in order to create awarenessabout the reduction of waste emission andthe promotion of reuse and recycling. Otherrespondents were of the opinion that thereshould be some economic incentivesimplemented.

• 90% of respondent are concerned aboutwaste.

• Over 80% of respondents are aware of thebenefits and they want to buy ecologically-friendly goods. However, half of therespondents complained of the difficultieswhen they want to buy ecologically friendlygoods. The reasons are, for example, lack ofinformation (30%) and price (20%). Theyrequest for more reliable information inorder to understand the contents ofecologically friendly goods.

From this point forward, the government willconduct continuous consumer research studiesof this sort.


The national government (for example, theDiet, government ministries and agencies andcourts) and Independent AdministrativeInstitutions are promoting comprehensive andplanned procurement practices based on theGreen Purchasing Law. The Law includes theparticipation of government offices. The itemsconcerned range from products such asautomobiles to services, such as theconstruction of public places like hospitals andbridges. The reason behind this process is thatthe government wishes to lead the way in thecarrying out of voluntary actions towards a‘greener society’ and is part of the process forimplementing ‘green’ government operations.

The Ministry of Environment has to co-ordinate the preparation of basic policy, in co-operation with other ministries andgovernment agencies. Each ministry has toprepare and publish green procurement plans in line with the basic policy.

Support


• more information on the topic of sustainable consumption.

Contact

Mr. Tetsuya KamijoAssistant DirectorPolicy and Coordination Division Global Environment Bureau Ministry of the Environment1-2-2, KasumigasekiChiyoda-kuTokyo, 100-8975Japan

Tel: +(81) 3 5521 8244 Fax: +(81) 3 3504 1634 E-mail: [email protected]

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Mauritius

Mauritius has made respectable progresstowards implementing a number of theelements of the UN Guidelines. However,the government is calling on the UnitedNations and other parties to provide moresupport and information.

The government of Mauritius had originallylearnt of the existence of the UN Guidelinesfor Consumer Protection through an issue of aUNEP newsletter. Overall, the governmentbelieves the Guidelines represent a very usefulexercise. Although it believes the Guidelinesare generally easy to understand, the means ofimplementation are not very explicit, and amore descriptive modus operandi would havebeen more effective.

The Ministry of Environment has initiatedsensitisation campaigns on the followingthemes:

• energy conservation;

• use of solar systems;

• water saving and reuse;

• use of ozone-friendly substances andproducts;

• reuse of paper;

• recycling of plastic; and

• the prudent use of plastic and relatedproducts.

This year (2002) has been declared TheNational Environmental Stewardship Year,where the whole population will be inculcatedwith a stronger sense of environmentalresponsibility.

CI’s Mauritius-based member organisation,the Institute of Consumer Protection (ICP), isworking with the Ministry of Environment toproduce the Consumer handbook on theenvironment, which will outline consumerresponsibility in ensuring a clean and healthyenvironment. ICP is also working with theMinistry of Education through consumer

education outreach in schools to develop abrochure on Children as consumers, which seeksto introduce consumer education, especially inreference to sustainable consumption habitsand patterns, in children.

The government could consider hosting aregional conference on the issue.

Implementing the GuidelinesThe following section provides a selection ofhighlights from the survey and follow-upinterview.


The government is fast shifting to recycledand recyclable plastic. In fact the governmenthas already shifted to PolyethyleneTerephthalate (PET) bottles for soft drinks andrelated products. At the same time the streetlighting has seen the introduction of efficientneon bulbs. The use of energy-saving bulbs isalso being encouraged.

Campaigns have been run on the efficient useof water as well as electricity and thegovernment is introducing the use ofunleaded petrol, as of 1 September 2002.


Recycling PET bottles has started. The bottlesare collected, compacted and exported toother countries, including South Africa. Thegovernment intends to extend the programmeto other areas.


Various fiscal incentives have been given tothe business community. Products thatadversely affect the environment are beingremoved from the market in phases. Forexample, the government is currently


promoting recycled and recyclable paper.Incentives have been provided in order to shiftfrom the importation of electric stoves to gasstoves, thus decreasing energy use.


The Central Statistic Office caters mainly foreconomic activities, but it has also started topublish environmental statistics. There is aproject to extend it to sustainableconsumption. There is a need for capacitybuilding in this area.

A study on consumer behaviour andsustainability has been done by the Universityof Mauritius, but it is expected that more in-depth research will be conducted soon.


To decrease the use of paper the government isin the process of moving towards ‘e-government’. Initiatives have been taken touse recycled paper, as well as to recycle printercartridges.

New government buildings are designed tomake optimum use of sunlight and use solarenergy heaters.

Support


• promotional material (for examplebrochures, posters);

• easy-to-understand training guides ortoolkits;

• more information on the topic of sustainableconsumption;

• more high-level coverage of sustainableconsumption and the UN Guidelines (forexample, at WSSD);

• opportunities to attend/organiseinternational meetings on the topic ofsustainable consumption and the UNGuidelines;

• case studies from countries that havesuccessfully implemented the Guidelines;

• involvement/creation of support networks,web resources, etc.; and

• an international convention on sustainableconsumption (a binding or voluntaryinternational agreement).

Contact

Mr R K BunjunAssistant Secretary, Ministry of EnvironmentKen Lee Tower Line Barracks Street Port Louis Mauritius

Tel: +(230) 211 3658E-mail: [email protected]

55


56

Senegal

Although Senegal may be somewhatbehind with regards the implementing ofsustainable consumption-related policies,the government is willing to effect change,and is requesting support from parties thathave experience in developing andencouraging sustainable consumptionpolicies and initiatives.

Senegal was aware of the existence of the UNGuidelines, but had not received thesustainable consumption section prior to thecommencement of the UNEP/CI researchproject.

A workshop was organised by thegovernment of Senegal, with the assistance ofinternational organisations (such as UNDP),on 21-22 August 2001. The meeting (Axe deReflexion sur la Mise en Ouvre de l’Agenda21) was divided into 21 groups/committees,Committee 4 being responsible for sustainableconsumption issues. The workshop resulted inthe development of a sustainableconsumption programme, under the auspicesof Agenda 21. Agenda 21 was at the timeconsidered the reference document for thepromotion of sustainable consumption inSenegal.

The government would be interested inorganising international meetings on thetopics of sustainable consumption and the UNGuidelines.

The government of Senegal admits to beingsomewhat behind regarding the internationalmomentum on sustainable consumption.Poverty in Senegal has led to a situationwhere the need for a vast quantity ofproduced goods and services has dominatedthe need for quality of the produced goodsand services. Such a proviso is based on theneed to feed the population.

Senegalese consumer associations (includingASCOSEN, ADEETÈLS, ASDEC and ADEC)are presently unable to fulfil their obligations,owing to a lack of tools. The main weaknessesof these organisations are their lack ofexpertise, skills in some particular aspects ofconsumer work (for example, lobbying,

communication and information, educationand testing) and lack of simple equipment inorder to be operational.

Senegal would benefit from support andpartnerships with those parties who havebeen successful at developing andencouraging sustainable consumption policies.

In Senegal, the deficiency of the appropriatetools constitutes a barrier to theimplementation of these Guidelines. There areseveral laws and regulations in Senegal, themajor difficulty being to provide aconstructive synthesis of the relevant ones.For example, there is a clause in the penalcode relating to consumer protection. It isnecessary that consumer organisations call onthe Government to implement appropriatechanges in this area. Furthermore, theGovernment notes that as the framework forSection G is rather general. The clarity andaccuracy of the sustainable consumptionsection of the UN Guidelines could beimproved by identifying the key strategicobjectives that must be followed.

The government has conducted someinformation campaigns on sustainableconsumption issues. There have beenprogrammes focussing on saving energy(water and electricity) and a transportation(mobility) plan in Dakar has also beenimplemented.




The government promotes the research anduse of renewable and sustainable energyresources. The government has alsoimplemented legislation that controls theoperation of machines that use gas and haveadverse greenhouse gas effects.



There is a recycling and garbage-disposalinitiative in Senegal. There are three or fourrecycling factories in the country. A group ofwomen have come together in Ouakam(Dakar) and are currently in the process ofrecycling plastic rubbish.

The government would like to formpartnerships with the UN or privatebusinesses in order to recycle plastic waste.


Under international pressure, the Senegalesegovernment was forced to gradually removesubsidies on gas and other products andservices. There is an environmental benefit andit does have relevance to sustainableconsumption in the context that if the gas pricerises, households would use charcoal (charbonde bois). This would accelerate thedeforestation and threaten the fragile forestreserves in the southern part of the country. Inother words, this form of consumption is notconsidered sustainable, according to thegovernment.


The office of Economic Studies and Statisticsprovides practical information on theevolution of sustainable consumption. Thegovernment does not conduct research onconsumer behaviour because of a lack offinancial resources.

Support


• more information on the topic of sustainableconsumption; and

• opportunities to attend/organiseinternational meetings on the topic ofsustainable consumption and the UNGuidelines.

Contact

Mrs. Boury NgomDepartment HeadConsumption and Quality DivisionMinistry of Trade10, rue de Thann DakarSenegal

Tel: +(221) 821 49 76 E-mail: [email protected]

57


58

Awareness of Guidelines

General awareness of the sustainableconsumption section of the UN Guidelineswas rather low in both OECD and non-OECDcountries – about two-thirds (70%) of OECDcountries were aware of their existence,compared with just over half (55%) of non-OECD countries.

The lack of non-English versions of theGuidelines has also impeded progress. Thesustainable consumption section of theGuidelines was translated into French andSpanish specifically for this survey. Only oncethe initial stages of the research project wereunderway were the complete Guidelinestranslated into French and Spanish byUNCTAD, almost three years after theirexpansion.

Numerous communications were receivedthroughout the research process fromgovernments and other bodies requestingfurther information about the Guidelines andthe topic of sustainable consumption. Thisclearly demonstrates that a better and moresystematic approach to spreading knowledgeand understanding of the Guidelines isrequired. Publicity campaigns, furtherlanguage translations and greater practices of accessibility must be instigated.

5 Conclusions

Recommendations• Governments should initiate a five-year

global framework programme, aimed atcomprehensive and integratedimplementation of the guidelines atnational, regional and international level.Note: The Ten Year Framework ofProgrammes on Sustainable Consumptionand Production was adopted at the WSSD.

• It remains a cornerstone of theadvancement of the work on the Guidelinesthat materials that promote and highlightthe existence and importance of theGuidelines are made available to allgovernments and other relevant parties.Outputs should include a brochure, posterand CD-ROMS.

• The Guidelines should be translated intomore languages.

‘Given that I just came to know about theseGuidelines after receiving this questionnaire, I believe that there are more people that are notaware of them and I urge those people responsiblefor this to find other ways to improve theiroutreach to people around the world.’Farran Redfern, Ministry of Environmentand Social Development, Kiribati

Conclusions

Modification of Guidelines

Governments in all parts of the world haveidentified difficulties in understanding themeaning and related requirements of someparts of the Guidelines. Some of thesemisconceptions may arise from languageconstraints or complicated wording.

Despite this, the vast majority of non-OECDcountries support the current wording andcontent of the sustainable consumption sectionof the Guidelines. Less than a third (30%) ofnon-OECD governments, compared withexactly half (50%) of OECD governments, feltthat certain components of the paragraphsneeded modifying. (This may be partly due tothe fact that only a minority of suchgovernments have made significant progresstowards implementation and are therefore notfully aware of the practical policy elementsrequired.)

Now that the Guidelines are at least availablein three languages and, with a sample ofdeveloping countries in support of the currentframework, it is hoped that implementationcan begin in earnest.

Although at a later stage some form of officialmodification may be required, the key issue isclarification of what is practically expected.

In this regard, UNEP and CI envisage the needto provide an accompanying toolkit to helpgovernments understand their obligations

under the specific elements. Training andinformation-sharing workshops are alsodeemed necessary.

Recommendations• A toolkit should be provided in all official

UN languages to advance the fullimplementation of the Guidelines byproviding pointers (practical solutions) togovernments in formulating appropriatepolicies to meet the various elements of theGuidelines.

• Other initiatives designed to better explainthe Guidelines should be developed,including training sessions, and providinggood-practice case studies and access toInternet-based training and informationresources.

‘The Guidelines are very useful in developingpolicies and revising or strengthening existing laws.’Beom-Sik YooDeputy Director, International Affairs,Ministry of Environment, Republic of Korea

Monitoring implementation

Fewer than half (48%) of non-OECDgovernments and just under two-thirds (60%)of OECD ones have a focal point formonitoring compliance with implementation of the Guidelines, so there is much room forimprovement (even though sustainableconsumption is a cross-sector issue and often

59

0

10

20

30

40

50

60

70

80

90

100

Aware Modify Monitoring Info campaigns

OECD

non-OECD

% (

yes)

Graph 5.1 Guideline awareness, modification, monitoring of implementation and information


60

requires a multi-ministry task force to measureactivities).

As was suggested in UNEP’s work in 2000 onsustainable consumption indicators,measuring progress in this area is crucial tohelp define goals and to referenceachievements. In this regard, the projectpartners envisage the need to presentmeasurable targets in order to gauge progresstoward implementation.

For example, a respectable achievement wouldbe to reduce the proportion of governmentsthat are not aware of the existence of Section Gof the Guidelines from the current 34% to 5%in three years (by 2005). A global follow-upreview of the status of implementation couldbe carried out at this time.

All governments should be expected tomeasure their own progress towardimplementation of Section G of the Guidelines.A government checklist would help with this.

Recommendations• Further research is needed to more fully

investigate the level to which initiatives orlegislation have been implemented insupport of each of the sustainableconsumption elements of the Guidelines. Theinformation should be publicly available.

• The international community should setmeasurable targets. Progress should bemeasured towards these goals.

• Every two years a global review should beconducted by impartial bodies to reviewprogress towards the targets and overallglobal implementation.

• Governments should carry out their ownmonitoring activities and nominate adepartment or organisation to beresponsible for compliance monitoring.

‘Defining and tracking sustainable consumption isan area that requires more conscious attention.’Duncan BuryHead, Product Policy, National Office of Pollution Prevention, EnvironmentCanada

Consumer information

One of the undoubted success storiesunearthed in this review has been the largenumber of governments that have raisedconsumer awareness about sustainableconsumption issues. Eight in ten governmentshave promoted such practices in recent yearsand many others have devised campaigns forthe future.

0

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Graph 5.2 Implementation of specific paragraphs of the Guidelines

Conclusions

61

The most common activities revolve arounddisseminating information about savingenergy and water resources, or aboutprotecting the environment by recycling orbuying recycled products.

Consumer awareness in this area is by nomeans limited to consumers in OECDcountries either – around three-quarters (76%)of non-OECD governments have initiated such efforts.

Awareness and information campaigns havebeen carried out in the full range of media,including TV, magazines, newspapers and theInternet. National consumer organisations orNGOs often manage the campaigns.

Consumers must be aware in order to makevalid and informed choices, and this remains acritical policy area for governments.Governments, in conjunction with civil societyand, in particular, with consumerorganisations, should advance activities,providing consumers with the right tools totake action.

Governments, especially those in non-OECDcountries, could learn from examples in othercountries, and extend their campaigns beyondthe traditional resource-saving sphere.Focusing on the direct consumer role inbringing about sustainable consumption is acritical theme.

Recommendations• International organisations, such as UNEP

and the OECD, should promote good-quality and reliable information aboutsustainable consumption to governments,business, non-governmental organisationsand the public.

• A library of good cases and acommunication planner should be madepublicly and globally available.

• Global outreach by organisations, such asUNEP and CI, should be improved in orderto better equip governments in their effortsto implement the Guidelines.

• An evaluation of the current content andmeans of providing information toconsumers by governments could providean opportunity for a dissemination of goodpractices between governments.

‘The government of Kuwait promotes sustainableconsumption information campaigns withseminars, courses and booklets.’ Mohammad A. Al-SarawiChairman and Director General,Environment Public Authority, Kuwait

Support for developing countries

Behind this record of overall progress lies amore complex picture of diverse experiencesacross countries, regions and major countryaggregates. Overall implementation rates mustbe viewed with caution, as they do not takeaccount of the varying levels of progress in therespective policy areas.

A serious limitation to progress towardscomprehensive global implementation lies inthe disparity between the accomplishments ofOECD and non-OECD countries. Non-OECDimplementation rates of sometimes less thanhalf the OECD average speak for themselves.

In all eight sustainable consumption-relatedpolicy areas measured, non-OECD countrieshave achieved comprehensively lowerimplementation rates than OECD countries(see graph 5.2, opposite).

The status of implementation of the specificelements of the Guidelines varies widely.Policies associated with providing publicinformation, conducting consumer researchand utilising regulatory mechanisms and,specifically, economic instruments are the leastimplemented paragraphs.

All OECD countries indicated that they hadsome form of a recycling programme in place,and also encouraged in some way the design,development and use of environmentally-sound products and services. By contrast,fewer than half of non-OECD governmentshave implemented related policies in thedomains of public information, consumer


62

research or economic instruments. OECDcountries should also be encouraged to makefurther progress. For example, fewer thanthree-quarters (72%) of OECD countries haveinstigated relevant public informationprogrammes that measure progress towardssustainable consumption.

With just half of governments in non-OECDcountries incorporating environmentalproduct testing and any elements ofsustainable government practices, there is along way to go before acceptable levels ofimplementation are reached. Target settingand ongoing measurement activities will beessential in this context.

Overall, the survey has revealed thatgovernments in both developed anddeveloping countries have a strong interest insupporting the implementation of theGuidelines. Encouragingly, policy makers allover the world are aware of the urgency ofprotecting their citizens from environmentaland social disasters by inspiring changes inconsumption and production patterns.

It is clear that many governments needsupport to formulate policies in line withthose highlighted by the Guidelines.Nevertheless, the fact remains that a gooddeal of the solutions are already available andare being practised by various authorities.These practical solutions need only betransferred to other governments. This callsfor better communication, more co-operationbetween governments, and training, feedbackand monitoring of results. Enthusiasm andgood practices should be shared so that globalpolicy implementation in this field can beboosted without duplication or wasted effort.

Governments are calling for training andother opportunities to learn from theinternational community, including consumerorganisations, NGOs and other interestedparties. A number of governments havesuggested that they would be interested inorganising or hosting workshops for thedissemination of experiences and also inorganising other forms of support, includingdeveloping training and promotionalmaterials. Sharing good practices and, in

particular, supporting implementation effortsin developing countries remains the challengeat hand.

Recommendations• Industrialised countries are generally

further advanced in the implementationprocess and should therefore shareknowledge and experiences withdeveloping countries. Industrialisedcountries should support developingcountries with direct knowledge transfer.

• Training and information disseminationworkshops should be organised in all majorworld regions. National policy experts andother relevant parties could provideinformation on their own experiences(successes and failures) in pushing aheadwith implementing the Guidelines.

• Support is needed for developing countryrepresentatives to attend the regionaltraining and experience-sharing sessions.

• An interactive training and resourcewebsite should be developed, providinggovernments and other interested partieswith access to case studies, toolkits and anopportunity to discuss experiences online.

‘I sincerely hope that UNEP will be able tosupport the Ministry of Environment toreinforce its capacities in the field of sustainableconsumption. We also hope that executives of theMinistry will be able to take part in futureinitiatives, including possible training coursesand other activities relating to the promotion ofsustainable consumption.’Jean-Pierre MoiseCo-ordinator, Climate ChangeProgramme, Ministry of Environment,Haiti

‘We like the co-operation between UNEP and CIand we would be happy if they could focus onconcrete cases and studies’.Robert BrnakMinistry of the Environment, Slovak Republic

Conclusions

63

‘China is a developing country with a hugepopulation and limited per capita resources. So itis most important for China to advancesustainable consumption and ensure sustainabledevelopment. China’s Consumers Associationhas put “green consumption” on its agenda asthe main theme of the current century toadvocate and promote sustainable consumptionamong the Chinese consumers.’China Consumers Association

Scoring implementationEach country was given a score for itsprogress with implementing eight keyparagraphs of Section G of the UN Guidelines,from 0 (no policy implementation) to 10(implementation in line with all paragraphsstarted, along with information andmonitoring activities). Bear in mind that thescore indicates only that implementation hasbegun, and not how far it has progressed.

Scores for all countries participating in thestudy are given in the table, right. An analysisof scores by region is given in graph 5.3,below.

Score10

9

8

7

6

5

4310

CountriesAustralia, Belgium, Brazil, CzechRepublic, Denmark, Estonia, Finland,Hungary, Republic of Korea, Mexico,Nicaragua, Sri Lanka, SwedenPeople’s Republic of China, Germany,India, Lithuania, Netherlands,Norway, Poland, VanuatuCanada, Hong Kong (China SAR),Kuwait, Seychelles, Slovak RepublicArgentina, Chad, El Salvador, Fiji,Israel, Japan, ZimbabweKiribati, Mauritius, New Zealand,Senegal, Switzerland1

Austria, Chile, Croatia, Indonesia,Italy, Uruguay, Bulgaria, Côte d’IvoireCosta Rica, HaitiBurundi, Ecuador, KenyaCyprus, Zambia 1 incomplete survey returned

OECD

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1

2

3

4

5

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Graph 5.3 Implementation indicator score by region


Section G. Promotion of SustainableConsumption

The Paragraphs focused on in the study are in bold.

42. Sustainable consumption includes meetingthe needs of present and future generations forgoods and services in ways that areeconomically, socially and environmentallysustainable.

43. Responsibility for sustainable consumptionis shared by all members and organisations ofsociety, with informed consumers,Government, business, labour organisations,and consumer and environmentalorganisations playing particularly importantroles. Informed consumers have an essentialrole in promoting consumption that is environ-mentally, economically and sociallysustainable, including through the effects oftheir choices on producers. Governmentsshould promote the development andimplementation of policies for sustainableconsumption and the integration of thosepolicies with other public policies.Government policy making should beconducted in consultation with business,consumer and environmental organisations,and other concerned groups. Business has aresponsibility for promoting sustainableconsumption through the design, productionand distribution of goods and services.Consumer and environmental organisationshave a responsibility for promoting publicparticipation and debate on sustainableconsumption, for informing consumers, andfor working with Government and businesstowards sustainable consumption.

44. Governments, in partnership with businessand relevant organisations of civil society,should develop and implement strategies thatpromote sustainable consumption through amix of policies that could include regulations;economic and social instruments; sectoralpolicies in such areas as land use, transport,energy and housing; information programmesto raise awareness of the impact ofconsumption patterns; removal of subsidiesthat promote unsustainable patterns ofconsumption and production; and promotionof sector-specific environmental-managementbest practices.

45. Governments should encourage thedesign, development and use of products andservices that are safe and energy and resourceefficient, considering their full life cycleimpacts. Governments should encouragerecycling programmes that encourageconsumers to both recycle wastes andpurchase recycled products.

46. Governments should promote thedevelopment and use of national andinternational environmental health and safetystandards for products and services; suchstandards should not result in disguisedbarriers to trade.

47. Governments should encourage impartialenvironmental testing of products.

48. Governments should safely manage envi-ronmentally harmful uses of substances andencourage the development of environmental-ly sound alternatives for such uses. Newpotentially hazardous substances should beevaluated on a scientific basis for their long-

64

Appendix 1: United Nations Guidelines for Consumer Protection

Appendix 1: UN Guidelines for Consumer Protection

65

term environmental impact prior todistribution.

49. Governments should promote awarenessof the health-related benefits of sustainableconsumption and production patterns,bearing in mind both direct effects onindividual health and collective effectsthrough environmental protection.

50. Governments, in partnership with theprivate sector and other relevantorganisations, should encourage thetransformation of unsustainableconsumption patterns through thedevelopment and use of new environmental-ly sound products and services and newtechnologies, including information andcommunication technologies, that can meetconsumer needs while reducing pollutionand depletion of natural resources.

51. Governments are encouraged to create orstrengthen effective regulatory mechanismsfor the protection of consumers, includingaspects of sustainable consumption.

52. Governments should consider a range ofeconomic instruments, such as fiscalinstruments and internalisation ofenvironmental costs, to promote sustainableconsumption, taking into account socialneeds, the need for disincentives forunsustainable practices and incentives formore sustainable practices, while avoidingpotential negative effects for market access,in particular for developing countries.

53. Governments, in cooperation withbusiness and other relevant groups, shoulddevelop indicators, methodologies anddatabases for measuring progress towardssustainable consumption at all levels. Thisinformation should be publicly available.

54. Governments and international agenciesshould take the lead in introducingsustainable practices in their ownoperations, in particular through theirprocurement policies. Governmentprocurement, as appropriate, shouldencourage development and use of environ-mentally sound products and services.

55. Governments and other relevantorganisations should promote research onconsumer behaviour related toenvironmental damage in order to identifyways to make consumption patterns moresustainable.

The full version of the UN Guidelines forConsumer Protection can be found at:www.uneptie.org/pc/sustain/guidelines/un-guidelines.htm


66

Appendix 2: survey questionnaire

Survey of the UN Guidelines for Consumer Protection

The questions relate to Section G of the United Nations Guidelines for Consumer Protection:Promotion of Sustainable Consumption (please see enclosed document). You can choose thelanguage of your preference, English, French or Spanish. We would like to encourage you toprovide any relevant supportive documentation along with the completed questionnaire.

Government: Your Name:

Your Title: Date:

Contact Details (address, phone number, e-mail)

GENERAL QUESTIONS

1. Before receiving this survey were you aware of the existence of the UnitedNations Guidelines for Consumer Protection?

YesNo

2. After reviewing the UN Consumer Guidelines (Section G – ‘Promotion ofSustainable Consumption’) what is your opinion of them? (maximum of tworesponses)

Easy to understandConfusingUseful for policy making Other (please explain below)

If yes, how did you come to know of them; what is your overall impression?

67


3. Do you believe that Section G (Sustainable Consumption) of the Guidelines needs tobe modified?

YesNo

4. If your government has started to adopt Section G of the Guidelines, is there afocal point who is responsible for the implementation or the compliance monitoringof the Guidelines?

YesNo

5. Has your government promoted awareness raising and information campaigns thatfocus on sustainable consumption?

YesNo

Please comment:

If yes, please provide contact details and description of responsibilities:

If yes, please provide details:


68

GUIDELINES IN GREATER DETAIL: (SECTION G: PROMOTION OF SUSTAINABLECONSUMPTION)

PRODUCTS, SERVICES AND TECHNOLOGY

(Refer to Guidelines, Section G, sub-sections 45, 50 opposite)

6. Has your government encouragedthe development and use of environmentally sound productsand services and new technologiesthat take into consideration fulllife cycle impacts?

YesNo

POLICY INSTRUMENTS

(Refer to Guidelines, Section G, sub-section 45 opposite)

7. Does your government have inplace national recycling schemes?

YesNo

45a. Governments should encourage the design,development and use of products and servicesthat are safe and energy and resource efficient,considering their full life cycle impacts.

50. Governments, in partnership with the privatesector and other relevant organisations, shouldencourage the transformation of unsustainableconsumption patterns through the developmentand use of new environmentally sound productsand services and new technologies, includinginformation and communication technologies,that can meet consumer needs while reducingpollution and depletion of natural resources.

45b. Governments should encourage recycling programmes that encourage consumers to both recycle wastes and purchase recycled products.

If yes, please provide some examples:

If yes, does your government have plans to expand/improve such initiatives?


69


8. Has your government created orstrengthened effective regulatorymechanisms for the protection ofconsumers, including aspects ofsustainable consumption?

YesNo


9. Does your government have in placeeconomic measures (e.g. taxes, subsidies) that promote sustainableconsumption?

YesNo


10. Does your government providepublic information (e.g. statistics,indicators, databases) thatmeasures progress towardssustainable consumption?

YesNo

51. Governments are encouraged to create orstrengthen effective regulatory mechanisms for the protection of consumers, including aspects ofsustainable consumption.

52. Governments should consider a range ofeconomic instruments, such as fiscalinstruments and internalisation of environmentalcosts, to promote sustainable consumption,taking into account social needs, the need fordisincentives for unsustainable practices andincentives for more sustainable practices, whileavoiding potential negative effects for marketaccess, in particular for developing countries.

53. Governments, in cooperation with businessand other relevant groups, should develop indicators, methodologies and databases for measuring progress towards sustainable consumption at all levels. This information should be publicly available.





70

RESEARCH


11. Does your government encouragethe impartial environmental testing of products?

YesNo


12. Does your government promoteresearch on consumer behaviour(related to environmentaldamage) in order to identify waysto make consumption patternsmore sustainable?

YesNo

WHAT IS YOUR GOVERNMENT DOING IN ITS OWN OPERATIONS?


13. Has your government introduced‘sustainable practices’ in its ownoperations? (e.g. green procurement, recycling schemes)

YesNo

47. Governments should encourage impartial environmental testing of products.

55. Governments and other relevant organisations should promote research on consumer behaviour related to environmental damage in order to identify ways to make consumption patterns more sustainable.

54. Governments and international agencies should take the lead in introducing sustainablepractices in their own operations, in particularthrough their procurement policies. Governmentprocurement, as appropriate, should encouragedevelopment and use of environmentally soundproducts and services.





71

OTHER COMMENTS

Please return completed survey to:

Matthew BentleyConsultant

United Nations Environment ProgrammeDivision of Technology, Industry and Economics

39-43 quai André Citroën,75739 Paris, Cedex 15,

France

Tel: +33 1 44 37 14 50Fax: +33 1 44 37 14 74

E-mail: [email protected]

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72

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73

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74

Appendix 4: resources

Consumers International (1997) A discerningmiddle class? Malaysia: CI ROAP

Consumers International (1997) A matter ofliving on earth: green vs. sustainable consumption:choosing sustainable consumption Malaysia: CIROAP

Consumers International (1997) A matter ofliving on earth: solar electricity programme inPulimarong village of Nepal Malaysia: CI ROAP

Consumers International (1997) A matter ofliving on earth: The Mumbai Grahak Panchayatinnovative distribution model Malaysia: CIROAP

Consumers International (1998) ‘India’sMiddle Class Consumers: Their (sustainable)consumption patterns’

Consumers International (1999) Green claimsLondon: CI

Consumers International (1999) Green labelsLondon: CI

Consumers International (1997) Consumers andthe environment: meeting deeds, changinglifestyles Chile: CI

EOLSS (2000) Encyclopaedia of life supportsystems (includes ‘Sustainable consumptionindicators’, UNEP article) Paris: EOLSS

IIED (1998) ‘Consumption in a sustainableworld’ London: Waterside Press (A report ofthe workshop held in Kabelåg, Norway, June2-4 1998)

IIIEE, Lund University (2002) Internationaljournal of cleaner production (includes ‘Gettingthe message across through regionalnetworks’) Lund: IIIEE

OECD (1999) ‘Towards more sustainablehousehold consumption patterns: Indicatorsto measure progress’ Paris: OECD

OECD (2001) ‘Policies to Promote SustainableConsumption: An Overview’ Paris: OECD

The Netherlands (1995) ‘Facilities for aSustainable Household Workshop: Report’The Hague: Netherlands

UN DESA (1998) Measuring changes inconsumption and production patterns: A set ofindicators New York: United Nations

UN Secretary General (1999) ‘Report of theSecretary General Changing ConsumptionPatterns’ New York: UN CSD

UNDP (1998). Human development report NewYork: Oxford University Press

UNEP (2000) Global environment outlook 2000London: Earthscan

Appendix 4: resources

75

UNEP (2000) ‘Is the Future Yours?’ (Activitybrochure) Paris: UNEP

UNEP (2001) Consumption opportunities:strategies for change Geneva: UNEP

UNEP DTIE (1994) Government strategies andpolicies for cleaner production Paris: UNEP

UNEP DTIE (1999) Report: ‘UNEPInternational Expert Meeting on Advertisingand Sustainable Consumption’ Paris: UNEP

UNEP DTIE (1999) Towards the global use of lifecycle assessment Paris: UNEP

UNEP DTIE (2000). Industry and environment:changing consumption patterns Paris: UNEP

UNEP DTIE (2001) Cleaner production: a guide tosources of information Paris: UNEP

UNEP DTIE (2001). Industry and environment:sustainable mobility (includes ‘Consumer Trendsand Expectations: An international surveyfocussing on environmental impacts’) Paris:UNEP

UNEP DTIE (2001) ‘Report on the First AfricaRound table on Cleaner Production andSustainable Consumption’ Paris: UNEP

UNEP DTIE (2001) ‘The Role of ProductService Systems in a Sustainable Society’ Paris:UNEP

UNEP DTIE (2002). ‘Advertising a BetterQuality of Life for All’ (WSSD, AdvertisingSector Report, submitted by the WorldFederation of Advertisers and the EuropeanAssociation of Communication Agencies)Paris: UNEP

UNEP/CDG (2000) Sustainable Consumptionand Production. ‘Creating Opportunities in aChanging World: Report of the 4thInternational Business Forum’ Berlin, 1999

UNEP/CDG (2002) ‘Workshop on SustainableConsumption for Latin America and theCaribbean: Meeting Report’. Sao Paulo: UNEP

UNEP/CI/CDG/Department of theEnvironment and Heritage, Australia (2001)‘Workshop on Sustainable Consumption forAsia Pacific: Background Paper’. Malaysia: CI ROAP

UNEP/UNESCO (2002) Youth, sustainableconsumption and life styles (MOST Series) Paris:UNEP/UNESCO

United Nations (1999) ‘United NationsGuidelines for Consumer Protection’ NewYork: UN CSD


76

About the project partners

The United Nations Environment ProgrammeDivision of Technology, Industry and Economics(UNEP DTIE)

The mission of the UNEP Division ofTechnology, Industry and Economics is to helpdecision-makers in government, localauthorities, and industry develop and adoptpolicies and practices that:

• are cleaner and safer;

• make efficient use of natural resources;

• ensure adequate management of chemicals;

• incorporate environmental costs; and

• reduce pollution and risks for humans andthe environment.

The UNEP Division of Technology, Industryand Economics (UNEP DTIE), with theDivision Office in Paris, is composed of onecentre and five branches.

The International EnvironmentalTechnology Centre (Osaka) which promotesthe adoption and use of environmentallysound technologies with a focus on theenvironmental management of cities andfreshwater basins, in developing countriesand countries in transition.

Production and Consumption (Paris) whichfosters the development of cleaner and saferproduction and consumption patterns thatlead to increased efficiency in the use ofnatural resources and reductions in pollution.

Chemicals (Geneva) which promotessustainable development by catalysing globalactions and building national capacities forthe sound management of chemicals and theimprovement of chemical safety worldwide,with a priority on Persistent OrganicPollutants (POPs) and Prior Informed Consent(PIC, jointly with FAO).

Energy and OzonAction (Paris) whichsupports the phase-out of ozone-depletingsubstances in developing countries andcountries with economies in transition, andpromotes good management practices and useof energy, with a focus on atmosphericimpacts. The UNEP/RISØ CollaboratingCentre on Energy and Environment supportsthe work of the Unit.

Economics and Trade (Geneva) whichpromotes the use and application ofassessment and incentive tools forenvironmental policy, and helps improve theunderstanding of linkages between trade andenvironment and the role of financialinstitutions in promoting sustainabledevelopment.

Coordination of Regional Activities Branchwhich co-ordinates regional delivery of UNEPDTIE’s activities and ensures coordination ofDTIE’s activities funded by the GlobalEnvironment Facility (GEF).

About the project partners

UNEP DTIE activities focus on:

• raising awareness;

• improving the transfer of information;

• building capacity, fostering technology co-operation;

• partnerships and transfer;

• improving understanding of environmentalimpacts of trade issues;

• promoting integration of environmentalconsiderations into economic policies; and

• catalysing global chemical safety.

For more information, contact:UNEP, Division of Technology, Industry andEconomics39-43, Quai André Citroën75739 Paris Cedex 15 France

Tel: +33 1 44 37 14 50Fax: +33 1 44 37 14 74E-mail: [email protected]: www.uneptie.org

Consumers International

Consumers International (CI) supports, linksand represents consumer groups and agenciesall over the world. It has a membership of over250 organisations in 127 countries. It strives topromote a fairer society through defending therights of all consumers, including poor,marginalised and disadvantaged people, by:

• supporting and strengthening memberorganisations and the consumer movementin general; and

• campaigning at the international level forpolicies which respect consumer concerns.

The organisation was founded in 1960 as theInternational Organisation of ConsumerUnions (IOCU) by a group of nationalconsumer organisations. The group recognised

that they could build upon their individualstrengths by working across national borders.The organisation rapidly grew and soonbecame established as the voice of theinternational consumer movement on issuessuch as product and food standards, healthand patients’ rights, the environment andsustainable consumption, and the regulation ofinternational trade and of public utilities.

CI is an independent, non-profit organisation.It is not aligned with or supported by anypolitical party or industry. It is funded by feesfrom member organisations and by grantsfrom foundations, governments andmultilateral agencies.

CI’s Head Office is in London, as is its officefor Developed and Transition Economies.Regional Offices are located in Kuala Lumpur(Malaysia), Santiago (Chile) and Harare(Zimbabwe).

For more information, contact:Consumers International24 Highbury CrescentLondon N5 1RXUK

Tel: +44 (0)20 7226 6662Fax: +44 (0)20 7354 0607E-mail: [email protected]: www.consumersinternational.org

77

Consumers International 24 Highbury Crescent London N5 1RX, UKTel: +44 020 7226 6663Fax: +44 020 7354 0607e-mail: [email protected]

United Nations Environment ProgrammeDivision of Technology, Industry and Economics39-43 Quai André Citroên 75739 Paris Cedex 15FranceTel: +33 1 44 37 14 50Fax: +33 1 44 37 14 74e-mail: [email protected]

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