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2021 | OriginalPaper | Buchkapitel

Soil Protection Governance in Germany

verfasst von : Harald Ginzky

Erschienen in: International Yearbook of Soil Law and Policy 2019

Verlag: Springer International Publishing

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Abstract

This chapter provides an overview on soil protection governance in Germany. It mainly addresses experts from outside of Germany. To this end, it explains Germany’s environmental, economic as well as historical and cultural situation, the governmental structure in Germany, shows the influence of the European Union on Germany’s environmental governance and determines the main drivers of soil degradation. On this basis, the governance approaches are elucidated. The chapter concludes with an assessment of the strengths and weaknesses of the current soil protection governance and recommendations on how to improve it.

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Vorheriges Kapitel The Healthy Soil Program

Nächstes Kapitel The EU Common Agricultural Policy and Its Contribution to the Protection and Sustainable Use of Soils: New Approaches for the Period 2021–2027

See the German Federal Water Act in its original version from 1957 (Gesetz zur Ordnung des Wasserhaushalts, BGBl. I S. 1110, S. 1386).

Kloepfer and Neugärtner (2016), p. 90 et seqq.

Gesetz zum Schutz vor schädlichen Bodenveränderungen und zur Sanierung von Altlasten (Bundes-Bodenschutzgesetz - BBodSchG) vom 17. März 1998 (BGBl. I S. 502).

Soils require more than only protection by, for example, limiting the use of fertilizers or by the establishment of protected areas. In fact, approaches, instruments and procedures for “sustainable soil management” are needed to deal with the environmental, economic and social challenges. See Ginzky (2020), p. 38/39. Thus, term “soil protection governance”, if used throughout the text, is to be understood to include all measures, which are potentially needed to achieve “sustainable soil management”.

The number of main soil types, found in Germany, is based on the German classification system. For more information see: https://www.umweltbundesamt.de/en/topics/soil-agriculture/soil-science/soil-types.

Federal Ministry for Economic Affairs and Energy (2018).

Federal Statistical Office (2019a): Exports and imports (special trade) by division of the national Product Classification for Production Statistics 2018.

Federal Statistical Office (2018a): Bodenfläche nach Art der Nutzung, p. 193.

Federal Statistical Office (2019b): Bruttoinlandsprodukt 2018 für Deutschland, p. 10.

Federal Ministry for Nutrition and Agriculture (2019).

Federal Statistical Office (2018b): Statistisches Jahrbuch, p. 26.

An English version of the “Grundgesetz” can be found under: http://www.gesetze-im-internet.de/englisch_gg/englisch_gg.html#p0114.

Maunz (1996), Sec. 32 et seqq.

See https://www.bundestag.de/en/parliament/function/legislation/passage-245704.

Kloepfer and Neugärtner (2016), p. 146.

English version under: https://eur-lex.europa.eu/resource.html?uri=cellar:2bf140bf-a3f8-4ab2-b506-fd71826e6da6.0023.02/DOC_2&format=PDF.

This concept is called “positive integration”. For further reference see European Commission (2017), p. 37 and 100.

European Commission (2017), p. 37.

Council Directive 92/43/EEC of 21 May 1992 on the conservation of natural habitats and of wild fauna and flora, under: https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A01992L0043-20070101.

Directive 2000/60/EC of the European Parliament and of the Council of 23 October 2000 establishing a framework for Community action in the field of water policy, under: https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32000L0060.

Directive 2004/35/CE of the European Parliament and of the Council of 21 April 2004 on environmental liability with regard to the prevention and remedying of environmental damage, under: https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32004L0035.

Directive 2010/75/EU of the European Parliament and of the Council of 24 November 2010 on industrial emissions (integrated pollution prevention and control), under. https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32010L0075.

Directive 2014/52/EU of the European Parliament and of the Council of 16 April 2014 amending Directive 2011/92/EU on the assessment of the effects of certain public and private projects on the environment, under: https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex%3A32014L0052.

Communication from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions - Thematic Strategy for Soil Protection, under. https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52006DC0231&from=EN In 2012 the Commission published a report on “the implementation of the Soil Thematic Strategy and ongoing activities”. See https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:52012DC0046.

Further information see Altvater et al. (2014), p. 25 et seqq.

Proposal for a Directive of the European Parliament and of the Council establishing a framework for the protection of soil and amending Directive 2004/35/EC, under: https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32008L0056.

Raffelsiefen and Strassburger (2017), p. 404.

Directive 2008/56/EC of the European Parliament and of the Council of 17 June 2008 establishing a framework for community action in the field of marine environmental policy, under: https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32008L0056.

See Stankovics et al. (2018) for an in depth-analysis of this criticism.

See: https://www.eea.europa.eu/policy-documents/7th-environmental-action-programme.

See Nr. 25 of EAP.

See conceptual suggestion for a new soil protection directive. The German Environment Agency 2018, under: https://www.umweltbundesamt.de/en/topics/uba-paper-the-need-for-soil-protection-legislation.

One exemption is if people act in aquatic settings. For example, fishing or shipping do not necessarily have a direct effect on soils.

EU Commission (2006). Additionally, eutrophication is nowadays discussed as a further threat category.

EU Commission (2012) with further information on the status of degradation with regard to the various threats.

FAO and ITPS (2015), p. 89 et seqq.

There may be other drivers. For example, wars normally cause tremendous negative effects on soil and land.

Kloepfer and Neugärtner (2016), p. 1122.

Kloepfer and Neugärtner (2016), p. 1123.

Wunder et al. (2018), p. 47.

German Environment Agency (2018), p. 14.

Wunder et al. (2018), p. 47.

Oceans sequester more carbon than soils.

LABO (2010), p. 4.

Ginzky (2020), p. 37.

This high level of discretion has been confirmed in several judgements of the Federal Constitutional Court in recent years. For further reference see Voßkuhle (2013), p. 4.

Kloepfer and Neugärtner, p. 122.

See for example German Constitutional Court Judgements, BVerfGE 49, 89; BVerfGE 53, 30; BVerfGE 56, 54; BVerfGE 79, 174.

Federal Constitutional Court Decision of December 12th 1979 - 1 BvR 385/77 (Mülheim-Kärlich).

Gesetz zum Schutz vor schädlichen Bodenveränderungen und zur Sanierung von Altlasten (Bundes-Bodenschutzgesetz - BBodSchG), 17.3.1998.

Kloepfer and Neugärtner (2016), p. 1145 et seqq.

German Federal Administrative Court Decision (BVerwG) from April 14th, 2005, 7 C 23.03.

§ 4 and 10 of the FSPA—unofficial translation.

Federal Environmental Agency (2013).

Kloepfer and Neugärtner (2016), p. 1184.

German Federal Court Decision from September 29th, 2016, I ZR 11/15.

German Constitutional Court Decision from February 16th, 2000, 1 BvR 242/91.

Kloepfer and Neugärtner (2016), p. 1190.

See Sect. 4.3.4. in this chapter.

§ 17 of the FSPA.

Baugesetzbuch (BauGB), 23.6.1960.

§ 1a III BauGB.

Bodle (2018), pp. 297–299.

In its Decision of January 31th 1997 (4 NB 27/96), the Federal Constitutional Court determined core principles for the assessment process, thereby focusing on possible impacts on living nature and scenery.

Grimski (2019).

For all infrastructural projects, such as roads, railways, airports, there are specific laws.

See Climate Action Plan 2050—https://www.bmu.de/en/topics/climate-energy/climate/national-climate-policy/greenhouse-gas-neutral-germany-2050/.

Germany’s National Sustainable Development Strategy, see: https://www.bundesregierung.de/breg-en/issues/suostainability/germany-s-national-sustainable-development-strategy-276504.

Integrated Environment Programme, see: https://www.bmu.de/themen/nachhaltigkeit-internationales/nachhaltige-entwicklung/integriertes-umweltprogramm-2030/.

Gesetz zum Schutz vor schädlichen Umwelteinwirkungen durch Luftverunreinigungen, Geräusche, Erschütterungen und ähnliche Vorgänge (BImSchG), 15.3.1974.

See Sect. 2.3. in this chapter.

§ 5 IV BImSchG.

Federal Mining Act, see: https://www.gesetze-im-internet.de/englisch_bbergg/index.html.

Federal Recycling Management and Waste Act, see: http://www.gesetze-im-internet.de/krwg/.

Federal Administrative Court (Bundesverwaltungsgerichts) Judgement 7 C 26.03, April 14th 2005.

See Verordnung zur Einführung einer Ersatzbaustoffverordnung, zur Neufassung der Bundes-Bodenschutz- und Altlastenverordnung und zur Änderung der Deponieverordnung und der Gewerbeabfallverordnung, available at: https://www.bmu.de/gesetz/verordnung-zur-einfuehrung-einer-ersatzbaustoffverordnung-zur-neufassung-der-bundes-bodenschutz-und/.

Federal Ministry for Nutrition and Agriculture (2019).

This may change if severe droughts as in summer 2018, and 2019 will be seen continuously in Germany.

Federal Pesticide Act (Pflanzenschutzgesetz) available at: http://www.gesetze-im-internet.de/pflschg_2012/index.html (German Version).

Federal Fertilizer Act (Düngegesetz), available at: https://www.gesetze-im-internet.de/d_ngg/index.html (German version).

See EU regulation No 1107/2009 concerning the placing of plant protection products on the market, under: https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:32009R1107&from=DE.

As the current requirements of the German legislation on Fertilizers do not cope with the requirement of the Water Framework Directive, the European Court of Justice has sentenced Germany to amend its legislation accordingly.

Such an enabling clause is constitutionally required to empower the executive branch to deliver subsidiary provisions. See Art. 80 of the German Constitution.

Ekardt (2008), p. 175.

In 2018 the EU supported farmers with a total of 58.82 billion euros, including a total of 41.74 billion euros in income support. See European Commission (2019).

See Council Regulation (EC) No 73/2009 of 19 January 2009 and Commission Regulation (EC) No 1122/2009 of 30 November 2009.

See Regulation (EU) No 1307/2013 of the European Parliament and of the Council of 17th December 2013.

See Council Regulation (EC) No 1698/2005 of 20 September 2005 on support for rural development by the European Agricultural Fund for Rural Development (EAFRD), in particular Art.39.3.

Raffelsiefen (2020).

Altvater (2014), p. 50 et seqq.

See § 15 forest law of Mecklenburg- West-Pomerania. See: http://www.landesrecht-mv.de/jportal/portal/page/bsmvprod.psml?showdoccase=1&doc.id=jlr-WaldGMV2011rahmen&doc.part=X.

Federal Environmental Impact Assessment Act, Annex 1, see: https://www.gesetze-im-internet.de/uvpg/UVPG.pdf.

The act transformed the EU directive on EIA.

Kloepfer and Neugärtner (2016), pp. 342 and 343.

Kloepfer and Neugärtner (2016), p. 346.

Federal Environmental Information Act, see: https://www.gesetze-im-internet.de/uig_2005/UIG.pdf The act transformed the EU directive on access to environmental information.

See Kloepfer and Neugärtner (2016), p. 469.

European Court of Justice, Judgment of the Court (Grand Chamber) of 14 February 2012 - Flachglas Torgau GmbH v Federal Republic of Germany (Case C-204/09).

Federal Environmental Harm Act, see: http://www.gesetze-im-internet.de/uschadg/USchadG.pdf.

https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32004L0035.

100

Special Report, quote.

101

LABO (2011), p. 7 et seqq. and Willand et al. (2014), p 20 et seqq.

102

LABO (2011), p. 9 et seqq. and Willand et al. (2014), p. 34 et seqq.

103

LABO (2011), p. 27 et seqq. and Willand et al. (2014), p. 38 et seqq.

104

Altvater et al. (2014) used the illustrative term “gap filling competence”.

105

See § 4 FSPA of North Rhine-Westphalia, under: https://recht.nrw.de/lmi/owa/br_bes_detail?sg=0&menu=1&bes_id=4898&anw_nr=2&aufgehoben=N&det_id=372782.

See also § 3 Soil Protection Law of Hesse, under: https://umwelt.hessen.de/sites/default/files/media/hmuelv/haltbodschg_2007.pdf.

106

Aichberger and Weber (2019).

107

The Text of UNFCCC could be found under: www.unfccc.int The text of the Paris Agreement could be found under: http://unfccc.int/resource/docs/2015/cop21/eng/l09r01.pdf.

108

The Text of CBD could be found under: www.cbd.int.

109

The Text of UNCCD could be found under: www.unccd.int.

110

Boer et al. (2016), p. 58 et seqqu. See also Bodle et al. (2020), p. 40.

111

Bodle et al. (2020), p. 126 passim.

112

Bodle et al. (2020), p. 52.

113

The Text of the Ramsar Convention could be found under: http://www.ramsar.org/.

114

Bodle et al. (2020), p.73 passim.

115

Durner (2019), Sec. 147.

116

See Preamble of the 1995 Alpine Convention, available at: https://www.alpconv.org/.

117

Bodle et al. (2020), p. 78 passim et seqq.; Markus (2015).

118

https://www.un.org/sustainabledevelopment/development-agenda/.

119

A thorough analysis of all SDG with regard to soil management is provided by Ehlers in this volume.

120

Boer et al. (2016), p. 62; Bodle et al. (2020), p. 37 passim. Although the 2030 Agenda, including the SDGs, are not legally binding, they are politically important as the Agenda was endorsed by all States.

121

Boer et al. (2016), p. 63.

122

UNCCD 2015.

123

Ginzky (2020), p. 42.

124

Ehlers (2016), p. 75.

125

In addition many other matters have to be clarified, defined and arranged, i.a. the following points: A baseline has to be defined, the status of soil/land have to be assessed, indicators for the assessment of the status, of land degradation and of restoration/rehabilitation actions as well as monitoring requirements have to be defined. Further information see Ehlers (2016), Minelli et al. (2016) and Cowie (2018).

Cowie (2018), p. 30.

Cowie (2018), p. 31.

Cowie (2018), p. 31.

For further information see https://www.bundesregierung.de/breg-en/issues/sustainability/germany-s-national-sustainable-development-strategy-354566.

130

National sustainable development strategy, p. 212. See under: https://www.bundesregierung.de/resource/blob/992814/730844/3d30c6c2875a9a08d364620ab7916af6/deutsche-nachhaltigkeitsstrategie-neuauflage-2016-download-bpa-data.pdf?download=1.

131

See https://www.bundesregierung.de/resource/blob/992814/730844/3d30c6c2875a9a08d364620ab7916af6/deutsche-nachhaltigkeitsstrategie-neuauflage-2016-download-bpa-data.pdf?download=1.

132

See National sustainable development strategy, p. 228.

133

It could be stated that the categories prevent (1), restore or rehabilitate (2), offset (3) and (4) plan would be more appropriate and clearer. See Bodle (2018) and Ginzky (2020).

However, the UNCCD in fact addresses the same aspects but attributes them differently to the four categories.

See above section.

See above section.

See above section.

A detailed analysis to which extent existing provisions implement the LDN concept concerning erosion, housing and settlements as well as industrial pollution was carried out by Bodle and Stockhaus (2018).

138

Kloepfer and Neugärtner (2016), p. 1135.

139

Federal Administrative Court (Bundesverwaltungsgericht) judgment of 10.09.1998 - 4 A 35/97; OVG (Higher Admistrative Court) Koblenz, judgment of 06.06.2000 - 8 C 11556/98.

140

For example some of these guiding documents focus on the assessment and evaluation of existing biotopes, see i.a. North Rhine-Westphalia (https://www.lanuv.nrw.de/natur/eingriffsregelung/numerische-bewertung-von-biotoptypen/) and Saxony-Anhalt (https://lvwa.sachsen-anhalt.de/das-lvwa/landwirtschaft-umwelt/naturschutz-landschaftspflege-bildung-fuer-nachhaltige-entwicklung/eingriffsregelung/).

141

Schmidt et al. (2014), p. 434; BVerwG (Federal Administrative Court) judgment of 10.09.1998 - 4 A 35/97.

142

See Sect. 4.3.4.

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Titel: Soil Protection Governance in Germany
verfasst von: Harald Ginzky
Verlag: Springer International Publishing
Buch: International Yearbook of Soil Law and Policy 2019
Print ISBN: 978-3-030-52316-9

Electronic ISBN: 978-3-030-52317-6

Copyright-Jahr: 2021
DOI: https://doi.org/10.1007/978-3-030-52317-6_15

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