CJEU judgment C-100/13
13 July 2017
European Commission closes infringement procedure on construction products against Germany
Consult the press release from the Federal Ministry for the Environment, Nature Conservation, Building and Nuclear Safety (BMUB)
7. Juli 2017
Information zu neuen Bescheidtypen
Der Europäische Gerichtshof erklärt in seinem Urteil C-100/13 vom 16. Oktober 2014 das Vorgehen Deutschlands für unzulässig, nationale Zusatzanforderungen an Bauprodukte mit CE-Kennzeichnung zu stellen.
Zur Berücksichtigung des EuGH-Urteils wurde die Musterbauordnung (MBO) durch Beschluss der Bauministerkonferenz vom 13. Mai 2016 geändert. Derzeit läuft die Anpassung der Bauordnungen in den Ländern. Bisher haben Sachsen-Anhalt und Nordrhein-Westfalen ihre jeweilige Landesbauordnung novelliert. Weitere Länder werden folgen. Es ergeben sich folgende Neuerungen:
Die novellierten Rechtsvorschriften sehen eine strikte Abgrenzung zwischen Anforderungen an Bauprodukte – soweit europarechtlich zulässig – und Regelungen für das Zusammenfügen von Bauprodukten zu baulichen Anlagen, sogenannte Bauarten, vor. Statt der bisherigen allgemeinen bauaufsichtlichen Zulassung oder Zustimmung im Einzelfall für Bauarten wird es nunmehr für Bauarten eine allgemeine oder vorhabenbezogene Bauartgenehmigung geben.
Dies hat Auswirkungen auf die Bescheide, die vom DIBt ausgestellt werden. Bei der Bearbeitung neuer Anträge werden ab dem 15. Juli 2017 folgende Fälle unterschieden:
Fall 1: Der Antrag enthält nur bauproduktbezogene Aspekte
In diesem Fall wird wie bisher eine allgemeine bauaufsichtliche Zulassung für das Bauprodukt erteilt.
Fall 2: Der Antrag enthält sowohl bauprodukt- als auch bauartbezogene Aspekte
Anstelle der bisherigen allgemeinen bauaufsichtlichen Zulassung für Bauprodukt und Bauart wird zukünftig eine allgemeine bauaufsichtliche Zulassung für das Bauprodukt erteilt, die zugleich eine Bauartgenehmigung umfasst. Ziffer 8 der Allgemeinen Bestimmungen weist auf diese Doppelfunktion des Bescheids hin.
Fall 3: Der Antrag enthält nur bauartbezogene Aspekte
Die bisherige allgemeine bauaufsichtliche Zulassung für die Bauart wird durch eine allgemeine Bauartgenehmigung ersetzt.
Für bereits laufende Verfahren gilt eine Übergangsfrist. Wenn mit der Erstellung des Bescheids bereits vor dem 15. Juli 2017 begonnen wurde, kann das Deutsche Institut für Bautechnik zwischen dem 15. Juli 2017 und dem 15. Dezember 2017 auch noch Bescheide in der bisherigen Form erteilen.
Bereits erteilte Bescheide müssen während ihrer Geltungsdauer nicht geändert werden.
Für die Bundesländer, die die MBO 2016 noch nicht umgesetzt haben, wird unter Ziffer 8 der Allgemeinen Bestimmungen sichergestellt, dass erteilte Bauartgenehmigungen auch als allgemeine bauaufsichtliche Zulassungen für die Bauart gelten.
Technische Baubestimmungen (MVV TB)
(Stand 31. Mai 2017)
Der Entwurf der MVV TB wird angekündigt, um den Betroffenen die Möglichkeit zu geben, sich auf die neue Rechtslage einzustellen. Stellungnahmen können bis zum 1. Juli 2017 an das DIBt (firstname.lastname@example.org) übermittelt werden. Die zunächst abschließende Veröffentlichung der MVV TB wird voraussichtlich Ende Juli 2017 erfolgen. Technische und rechtliche Änderungen werden in regelmäßigen Abständen nach Befassung der Gremien der Bauministerkonferenz vorgenommen.
5. Mai 2017
Prioritätenliste für die Überarbeitung defizitärer harmonisierter Normen
ARGEBAU bittet DIN um Unterstützung
Der Vorsitzende der Fachkommission Bautechnik der Bauministerkonferenz, Dr.-Ing. Gerhard Scheuermann, hat das Deutsche Institut für Normung (DIN) um Unterstützung bei der Überarbeitung defizitärer harmonisierter Normen gebeten, die harmonisierte Verfahren und Kriterien für die Bewertung der Leistungen dieser Bauprodukte in Bezug auf ihre “Wesentlichen Merkmale“ vermissen lassen. Als Grundlage für die Zusammenarbeit übersendete er der Geschäftsleiterin des Bereichs Normung, Frau Dr.-Ing. Ulrike Bohnsack, eine Hinweisliste ("Prioritätenliste").
Eine intensivierte Zusammenarbeit mit dem DIN soll dazu beitragen, harmonisierte Normen schnellstmöglich so zu vervollständigen, dass all die Leistungen auf Basis der harmonisierten Normen erklärt werden können, die für die Erfüllung der deutschen Bauwerksanforderungen von Bedeutung sind.
Die "Prioritätenliste - Ausgewählte verwendungsspezifische Leistungsanforderungen zur Erfüllung der Bauwerksanforderungen" ist hierfür ein wichtiger Orientierungspunkt.
20 April 2017
Deficient European standards for construction products
Germany files action against European Commission
Germany has been pointing out shortcomings in harmonised European standards to the European Commission for years. In the past, Germany compensated for these shortcomings by introducing additional national rules to ensure that the requirements for construction works in terms of safety, health and environmental protection are met in spite of the deficient standards. However, the Court of Justice of the European Union declared this practice inadmissible in its judgment of 16 October 2014. As a result, Germany raised objections against a first set of six harmonised standards in 2015. The first two objections have now been rejected by the European Commission. Germany has therefore decided to bring the case before the General Court of the European Union.
For further information, please refer to the press release of the Federal Ministry for the Environment, Nature Conservation, Building and Nuclear Safety.
20 October 2016
Information regarding the enforcement of the CJEU judgment of
16 October 2014 in case C-100/13
Federal state decrees regarding the enforcement of the provisions relating to the use of harmonised construction products under Regulation (EU) No. 305/2011 (available in German only)
- Baden-Württemberg (German)
- Bavaria (German)
- Berlin (German)
- Brandenburg (German)
- Bremen (German)
- Hamburg (German)
- Hesse (German)
- Mecklenburg-West Pomerania (German)
- Lower Saxony (German)
- North Rhine-Westphalia (German)
- Rhineland-Palatinate (German)
- Saarland (German)
- Saxony (German)
- Saxony-Anhalt (German)
- Schleswig-Holstein (German)
- Thuringia (German)
14 October 2016
Amended Building Code in Saxony-Anhalt
The first amended Building Code transposing the revised Model Building Code 2016 will enter into force in Saxony-Anhalt on 15 October 2015.
The changes became necessary due to the Judgment of the European Court of Justice of 16 October 2014 in case C-100/13 relating to the free movement of construction products.
The State Parliament of Saxony-Anhalt adopted the Second Act Amending the Building Code of the State of Saxony-Anhalt of 28 September 2016 to this effect.
Until the Administrative Provisions – Technical Building Rules can be published, it is envisaged to implement transitional provisions by decree.
- Consolidated version of the revised Model Building Code (MBO)
as of 13 Mai 2016 (available in German only)
- Resoning of the Conference of Construction Ministers (BMK) regarding the revision of the Model Building Code
as of 4 March 2016, corrected on 20 April 2016 (available in German only)
22 August 2016
Supplement to the DIBt comments dated 13 April 2015 and 17 December 2015
National technical approvals (allgemeine bauaufsichtliche Zulassungen) for construction products falling within the scope of harmonised specifications
The CJEU judgment of 16 October 2014 is a declaratory judgment which requires the Member State to end the violation and take the necessary measures to comply with the judgment on its own initiative and at its own discretion. The competent committees of the Conference of Construction Ministers (Bauministerkonferenz) have carefully considered the consequences of the judgment and initiated a revision to the Building Codes of the federal states (Landesbauordnungen) and a change in the regulatory system following the withdrawal of the provisions specified in the judgment from Construction Products List (Bauregelliste) B Part 1. The European Commission, the Federation and the federal states (Länder) basically agree that a transition period of two years is necessary for the implementation of the CJEU judgment to allow for the changes to the existing administrative practice to take place in an orderly fashion. The defined process ensures the implementation of the CJEU judgment in a reasonable amount of time, but also the equal treatment of all market participants. The deadline for implementation is 15 October 2016.
That said, the transitional provisions for national technical approvals (allgemeine bauaufsichtliche Zulassungen) leading to CE + national conformity (Ü-Zeichen) marking for construction products with CE marking under the Construction Products Regulation ((EU) Regulation No 305/2011) lay down the following further steps:
Construction Products List (Bauregelliste) B Part 1 will be abrogated as soon as the Administrative Provisions – Technical Building Rules (VV TB) come into force. According to the current state of the process, this will not be before 26 October 2016 at the earliest. Due to the statutory notification process of the European Commission, entry into force of the Administrative Provisions – Technical Building Rules may be delayed by three months or longer. With the exception of the obligation to present national technical approvals (allgemeine bauaufsichtliche Zulassungen) as proof of product performance and provide attestations of conformity, Construction Products List (Bauregelliste) B Part 1 shall remain effective until that time.
As of 16 October 2016, national technical approvals (allgemeine bauaufsichtliche Zulassungen) or other national proofs of fitness for use, attestations of conformity and additional national conformity marks will no longer be permitted for harmonised construction products with CE marking under the Construction Products Regulation. The provisions concerning national conformity marking will no longer be enforced for these construction products. A corresponding official announcement by DIBt will follow.
Until further notice, the assessment and test results upon which the national technical approvals (allgemeine bauaufsichtliche Zulassungen) are based may be used as qualified technical documentation for the evaluation of the fitness for use.
25. Juli 2016
Draft technical regulations notified via TRIS
The following drafts have been notified via the EU Technical Regulations Information Service (TRIS):
- 2016/376/D: Draft Model Administrative Provisions – Technical Building Rules (MVV TB), as at 20 July 2016
Notified on: 21 July 2016
- 2016/229/D: Model Ordinance on determining the suitability under water resources legislation of construction products and techniques by means of verifications pursuant to the Model Building Code (WasBauPVO), as at 12 October 2016
Notified on: 18 May 2016
- 2016/228/D: Draft Model Building Code (MBO) - as at 31 March 2016 (revised status 21.4.2016)
Notified on: 18 May 2016
(Convenience translation provided by the European institutions. Any discrepancies or differences from the German orgininals that may arise in these translations are not binding and have no legal effect for compliance or enforcement purposes. The terminology may deviate from the one used on this website.)
13 April 2015
CJEU judgment of 16 October 2014 (case C-100/13)
DIBt comment on the legal situation of new applications for national technical approvals (allgemeine bauaufsichtliche Zulassungen, abZs) or applications to extend the validity of abZs for construction products falling within the scope of harmonised specifications
The judgment in case C-100/13 delivered by the European Court of Justice on 16 October 2014 has given rise to this comment. The European Court of Justice considered that the Federal Republic of Germany infringed the Construction Products Directive (Directive 89/106/EEC) through its Construction Products Lists which imposed additional requirements for the effective market access and the use of construction products in Germany even though the construction products in question were covered by harmonised standards and bore a CE marking.
The high number of questions from applicants and their associations shows that there is considerable uncertainty among the parties concerned. The enquiries particularly refer to the question on whether national technical approvals (allgemeine bauaufsichtliche Zulassungen) will continue to be necessary and may still be granted in the future.
The CJEU judgment relates to additional requirements for three products specifically mentioned. These requirements relate to the long-term seal effect of pipe seals made of thermoplastic elastomer, the glowing combustion behaviour of insulation materials made of mineral wool and the reaction to fire of gates without fire and smoke protection properties. The CJEU judgment is a declaratory judgment which does not repeal the national provisions which the CJEU considered to be in non-compliance with Community law. Nevertheless, the judgment lays an obligation on the Member State to decide for itself and at its own discretion what measures have to be taken to comply with the judgment.
The competent committees of the Conference of Construction Ministers (Bauministerkonferenz) are currently discussing intensively how the findings of the judgment can be extended to the Construction Products Regulation (Regulation (EU) No 305/2011) and what this means for the German Construction Products Law. The aim is to achieve full compliance with EU provisions while respecting the citizens' fundamental rights by making sure that the basic requirements for construction works stated in Annex I of the Construction Products Regulation (e.g. construction works safety, health, environmental protection as well as objects of protection of public interest) are fulfilled.
As a first step, the provisions set out in the Construction Products List (Bauregelliste) B Part 1 which have been explicitly mentioned in the CJEU judgment have been suspended (enclosures 1/12.3 and 1/12.4 relating to no. 1.12.10, enclosure 1/5.2 relating to no. 1.5.1 and enclosure 1/6.1 relating to no. 1.6.7). As of now, national technical approvals (allgemeine bauaufsichtliche Zulassungen) will no longer be granted in these cases.
The following shall apply for the remaining products within the scope of harmonised specifications in accordance with the Construction Products Regulation:
The Construction Products Lists (Bauregellisten) and Lists of Technical Building Rules (Liste der Technischen Baubestimmungen) as last amended continue to apply for the time being. These valid regulatory provisions in the field of construction are implemented until a final decision is taken. The level of protection provided for in the building sector is maintained. This means that, upon request, national technical approvals (allgemeine bauaufsichtliche Zulassungen) may still be granted for the construction products stated in the lists as a proof that these fulfil the regulatory requirements in the field of construction.
European Technical Assessments (Art. 19(1) Construction Products Regulation), in particular, can be used as a proof instead of a national technical approval (allgemeine bauaufsichtliche Zulassung) as well. It is to be noted that the ETA might be the only possibility for proof in the future.
The position currently taken by the committees of the Conference of Construction Ministers (Bauministerkonferenz) is that applications for national technical approvals (allgemeine bauaufsichtliche Zulassungen) in this area will be accepted until 31 January 2016. The validity of the approvals concerned depends on the approval with the longest validity currently granted in the sector concerned (area of approval). This approach aims at restricting the validity while ensuring a level playing field.
In addition, it is planned to review the lists at short notice and to drop the additional requirements which have immediately become redundant by 31 July 2015 once the consultation process within the committees has been completed. DIBt will inform you on a case-by-case basis since the decisions necessary in this context have not been taken yet. In these cases, too, DIBt will no longer grant approvals.
A second step includes plans to completely repeal the Construction Products List (Bauregelliste) B Part 1 and other additional requirements for harmonised construction products contained in other sets of rules by 15 October 2016. Requirements still considered to be necessary in Germany should be defined at construction works level (construction works requirements) by that date at the latest.
The plans provide for statutory transition rules for approvals valid after 15 October 2016. The transition rules aim is, as far as can now be predicted, to ensure that until the end of the approvals' validity the then valid approvals can be used as proof that the regulatory requirements in the field of construction are fulfilled.
The statements made above reflect the information currently available to DIBt. We will inform you again as soon as further measures on the implementation of the CJEU judgment have been identified.
17 December 2015
CJEU judgment of 16 October 2014 (case C-100/13)
Supplement to DIBt comment, dated 13 April 2015, on the legal situation of new applications for national technical approvals (allgemeine bauaufsichtliche Zulassungen, abZs) or applications to extend the validity of abZs for construction products falling within the scope of harmonised specifications
In its comment dated 13 April 2015, DIBt said it would share any new information regarding the implementation of the CJEU judgment as soon as it became available. Accordingly, we should like to inform you about the current state of discussions.
We must first clarify that the comment does not refer to national technical approvals (allgemeine bauaufsichtliche Zulassungen) for construction products that do not fall within the scope of harmonised specifications. The granting of approvals in the non-harmonised area is not affected by the above CJEU judgment.
The committees of the Conference of Construction Ministers (Bauministerkonferenz) are currently preparing a revision of the Model Building Code (Musterbauordnung). According to the draft, it will not be possible for the building authorities to request national proofs of fitness for use or conformity for construction products bearing the CE-marking under the Construction Products Regulation (Regulation (EU) No. 305/2011).
As a result, it is expected that national technical approvals (allgemeine bauaufsichtliche Zulassungen) will lose their function as a proof of fitness for use within the meaning of the Building Codes of the Länder (Landesbauordnungen) in connection with products bearing the CE-marking under the Construction Products Regulation and that the national conformity mark (Ü-Zeichen) may no longer be possible for such products.
These changes will probably be introduced at the same time as the complete withdrawal of the Construction Products List (Bauregelliste) B Part 1 and other additional requirements with respect to harmonised construction products laid down in other sets of rules as of 15 October 2016. This is also when the amended Building Codes of the Länder (Landesbauordnungen) should enter into effect – after completing the legislative procedures required under the relevant state laws.
Based on the current state of discussions, national technical approvals (allgemeine bauaufsichtliche Zulassungen) that are valid beyond that date (15 October 2016) may still be submitted to the building authorities for the remainder of their validity as technical evidence that the national requirements for construction works have been met where the performance characteristics declared in accordance with the harmonised specifications do not satisfy these national requirements. For use as technical evidence, it is recommended that the provisions regarding internal and/or external surveillance be complied with, because this is the only way to ensure the construction product's compliance with the provisions of the approval. Recognised bodies will continue to be available for surveillance required under the approvals – that is, also beyond 15 October 2016.
We should like to point out that you may withdraw your request for a national technical approval (allgemeine bauaufsichtliche Zulassung) at any time during the approval procedure.
The legal situation of national technical approvals (allgemeine bauaufsichtliche Zulassungen) for construction products bearing the CE-marking exclusively under harmonisation rules other than the Construction Products Regulation, such as the Machinery Directive (Directive 2006/42/EC), is still under discussion (cases under the Construction Products List (Bauregelliste) B Part 2).
We will keep you informed about any new developments.
17 October 2014
Press release on the judgment of the European Court of Justice of 16 October 2014
Germany condemned by CJEU for impeding the free movement of construction products – Judgment of 16 October 2014, case C-100/13
The court declared additional technical requirements contained in DIBt's Construction Products Lists for construction products already harmonised at European level to be inadmissible trade barriers. The judgment delivered concerns the following products: "pipe joints seals made of thermoplastic elastomer", "insulating materials made of mineral wool" as well as "gates, windows and exterior doors".
Now, the scope of the judgment has to be thoroughly assessed since the court based its judgment on the Construction Products Directive (89/106/EEC), which has meanwhile been replaced by a new piece of legislation – the Construction Products Regulation (Regulation (EU) No 305/2011). One particularly important question is whether this judgment may be applied to other products covered by harmonised standards.
The consequences for DIBt following from this judgment will now have to be discussed in close consultation with the Länder (federal states) and the Federal Government. DIBt will provide more information on the results of such consultation as soon as the consultation process has been completed.
Original text of the European Court of Justice judgment of 16 October 2014
(available in German and French only)