Economic and Social Council

 Distr. GENERAL
13 May 1997
ORIGINAL: ENGLISH

Substantive session of 1997
Geneva, 30 June-25 July 1997
Item 7 (a) and (b) of the
  provisional agenda*

     * E/1997/100.


            REPORTS, CONCLUSIONS AND RECOMMENDATIONS OF SUBSIDIARY
                 BODIES:  ECONOMIC AND ENVIRONMENTAL QUESTIONS

                              Consumer protection

                        Report of the Secretary-General

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                                     SUMMARY

      The present report, submitted in compliance with Economic and
Social Council resolution 1995/53, reviews progress achieved in the
implementation of the guidelines for consumer protection.  It notes
the steps that have been taken by Governments at the national level,
as well as regional and international cooperation, to promote consumer
protection.

      The report highlights the results emanating from regional
conferences/ seminars held over the past two years in the African and
Asia and Pacific regions, and makes a number of recommendations for
the consideration of the Council concerning the further implementation
of the guidelines - including calling for closer cooperation among the
concerned organizations of the United Nations system - and concerning
the encouragement and strengthening of the broad coalition and
partnership existing between the United Nations, international
consumer organizations, donors and host Governments in this area.  It
is also suggested that, based on the results achieved at regional
conferences and seminars, an interregional expert group be convened to
develop guidelines on sustainable consumption patterns.
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                                   CONTENTS

                                                          Paragraphs  Page

INTRODUCTION ................................................ 1 - 4     3

 I.   IMPLEMENTATION OF MEASURES FOR CONSUMER PROTECTION .... 5 - 49    4

      A. Progress at the national level ....................  5 - 16    4

      B. Regional and international cooperation ............ 17 - 25    7

      C. The United Nations system ......................... 26 - 46    9

      D. Non-governmental organizations .................... 47 - 49   13

II.   THE GUIDELINES FOR CONSUMER PROTECTION AND SUSTAINABLE
      CONSUMPTION PATTERNS ..................................50 - 56   14

III.  CONCLUSIONS AND RECOMMENDATIONS .......................57 - 59   16


                                 INTRODUCTION


1.   The Economic and Social Council, in its resolution 1995/53 of 28
July 1995 on consumer protection, urged Governments to continue their
efforts to implement the guidelines on consumer protection, including
by creating appropriate legal frameworks and establishing means to
develop, implement and monitor policies and programmes for consumer
protection.  The Council also recognized the role of civil society, in
particular non-governmental organizations, in promoting the
implementation of the guidelines.  And noting the recommendation of
the Commission on Sustainable Development that the guidelines for
consumer protection be expanded to include guidelines for sustainable
consumption patterns, 1/ the Council requested the Secretary-General, in
cooperation with the development funds and programmes of the United
Nations, the regional commissions and other relevant organizations and
bodies of the United Nations system, to continue to provide assistance
to Governments, at their request, in implementing the guidelines for
consumer protection, to elaborate guidelines in the area of
sustainable consumption patterns, taking into account the work
undertaken in other intergovernmental forums, and to examine the
possible extension of those guidelines into other areas.  Finally, the
Council requested the Secretary-General to submit a report to it at
its substantive session of 1997 on the implementation of the
resolution; the present report has been prepared in response to that
request.

2.   The guidelines for consumer protection, which were adopted by the
General Assembly in its resolution 39/248 of 9 April 1985, represent
an internationally accepted regulatory framework that serves as a
basis for the elaboration and strengthening of national policies and
legislation in the area of consumer protection.  They are intended to
protect citizens as consumers through the implementation of a set of
principles of fair and reasonable standards covering physical safety;
the promotion and protection of consumers' economic interests;
standards for the safety and quality of goods and services;
distribution facilities; redress; and education and information.  They
also promote international cooperation in this area.

3.   Since the adoption of the guidelines, vast changes have taken
place in the global marketplace that make it necessary to assess the
impact of the guidelines, not only to ensure that intended results
have been achieved but also to assess the relevance of the guidelines
in the light of new economic trends.  The globalization of financial
markets and liberalization of trade, the growing interdependence among
countries, the emergence of borderless economic spaces and
deregulation in many areas of economic activity have transformed the
world economy, and are creating new dynamics in the functioning of the
international markets that directly affect the consumer.

4.   The present report reviews the progress achieved in the period
between 1995 and 1996 at the national, regional and international
levels in the implementation of the guidelines for consumer
protection.  It covers activities undertaken by Governments, the
programmes, funds and organizations of the United Nations system, and
other intergovernmental organizations in implementing the guidelines. 
It also reviews activities undertaken by civil society, in particular
non-governmental organizations, concerned with issues of consumer
protection.  In this context, progress towards the extension of the
guidelines to the area of sustainable consumption patterns and other
areas is reviewed, and recommendations are made for future action to
expand the scope of the guidelines.


            I.  IMPLEMENTATION OF MEASURES FOR CONSUMER PROTECTION

                      A.  Progress at the national level

5.   The role of Governments in the protection of consumers in the
modern market remains vital, in particular in the areas of policy-
making, legislation and the development of institutional capacity for
the enforcement of consumer law.  The Economic and Social Council, in
its resolutions 1988/61, 1990/85 and 1995/53, has encouraged
Governments to provide a legal framework and maintain a strong
consumer policy for the protection of consumers.

6.   In countries where Governments are initiating action for consumer
protection, the guidelines define an essential point of departure for
elaborating policies and legislation in order to protect the consumer
in such areas as health and safety, access to goods and services, and
measures for redress.  In other countries, the guidelines generally
continue to serve as an instrument to assist Governments in
identifying areas where further supportive actions are necessary for
the protection of citizens as consumers.

7.   In the period under review, a number of Governments have reported
that they have made use of and cited the guidelines as a framework for
their efforts to develop and strengthen consumer protection policy and
legislation.  The action undertaken includes the establishment of
ministries and offices concerned specifically with issues of consumer
affairs; the formulation of national consumer policy and relevant laws
and acts; the elaboration of competition law; the elaboration of
consumer education programmes and the dissemination of consumer
protection information; and the promotion of participation by
consumers' organizations in aspects of the decision-making process in
areas of consumer protection.

8.   Some countries have reported the existence within their
Governments of specific ministries and/or ministers for consumer
affairs.  These include Sweden, Estonia, and Trinidad and Tobago,
while other countries, such as Norway, Cyprus, Slovenia, Belarus,
Denmark and Mexico, have established departments and/or offices
concerned solely with consumer protection.  A commission for the
protection of the consumer has been established in Peru, and Portugal
has established a consumer institute and a national consumer council
for promoting and safeguarding consumer rights and executing measures
aimed at their protection.  In Australia, the minister of the
Government responsible for small business and consumer affairs, with
the assistance of an advisory council of consumer affairs, is
responsible for issues related to consumer protection, and government
ministers responsible for consumer affairs have also been appointed at
the state and territory levels.  In addition, Australia has
established a ministerial council on consumer affairs, which includes
the ministers responsible for fair trading, consumer protection laws,
trade measurement and credit law at the state and territory levels. 
Zimbabwe has established an institutional structure for consumer
protection, involving several ministries and departments.

9.   Generally, Governments continue to indicate the usefulness of the
framework of the guidelines for consumer protection in the
consideration of the development of consumer policy and law and
related codes for the protection of the consumer (Cyprus, Mexico,
Ecuador, Italy, Estonia and Lithuania); the adoption of state policy
on consumer protection (Belarus); the incorporation of elements of the
guidelines (physical safety, consumers' economic interests, redress
measures) in consumer protection law (Peru); and as an important point
of reference in the encouragement of activities in this area
(Germany).  Australia has developed policies for consumer protection
at the national, state and territory levels in line with all the
elements of the guidelines.  Portugal has established a comprehensive
legal system on consumer protection through the adoption of a law
which includes provisions to protect the users of essential public
services, such as water, electricity, gas and telephone services. 
Slovenia is currently in the process of preparing a law on consumer
protection, and the Government of Oman is in the process of
establishing guidelines for consumer protection.

10.  A number of countries are promoting activities related to the
elaboration and enforcement of competition law and policy, and are
addressing consumer protection issues in that context.  Australia has
established a competition and consumer commission, and is implementing
provisions of competition policy at the state and territory levels
with a view to developing a competitive economic environment with
uniform rules and rights for consumers and business.  Zimbabwe has
enacted a competition law, and it is envisaged that a trade
competition commission, to be established in the near future, will be
administering such a law.  Cyprus is implementing a competition law,
while Bolivia is currently preparing a code on the workings and
functioning of markets that will include issues of consumer protection
and competition.  Ecuador, Italy, Mexico, Estonia and Lithuania are
undertaking work in the formulation of related competition policy and
law.

11.  In such countries as Cyprus, Ghana, Sweden, Lithuania, Denmark and
Mexico, a number of activities have focused on the formulation and/or
strengthening of standards, regulations and rules on food and products
safety.  In Australia, activities have included the introduction of
strategies to reduce or remove physical hazards associated with
consumer products, the enhancement of product safety standards and
their enforcement, and the introduction of credit and industry codes,
including dispute resolution schemes.

12.  Governments have also carried out educational outreach programmes,
including the use of media and advertising and the organization of
symposia, conferences and seminars.  A two-day symposium on food
security and nutrition was organized in Trinidad and Tobago in
commemoration of the World Consumers Rights Day.  A programme for the
dissemination of information to consumers was developed in Peru on
that occasion, and Belarus commemorated the event under the slogan
"Safe products for all".  Training activities, including seminars and
workshops on issues of consumer protection, have also taken place in
Peru.

13.  The European Conference on Consumer Education in Schools, held at
Stockholm in 1993, established the European Network of Consumer
Educators, which has since started the publication of its newsletter
Nice-Mail.  The Internet is being used as a medium for disseminating
consumer education.  For example, the Norwegian Consumer Council has a
home page on the School Network of the Norwegian Centre for
Educational Resources, and Australia is considering the use of this
mechanism for the dissemination of information on product recall
provisions.  Related courses have been introduced in the Norwegian
secondary school system, and also at the primary level in Denmark. 
Belarus expects to develop in 1997 a pilot programme on "consumer
literacy" for students in vocational and technical schools, and also
at intermediate and higher educational institutions.  The bulletin
Consumption with Care, published in Peru, provides consumer
information on such issues as consumer rights, availability of goods
and services, and redress measures.

14.  Activities related to product testing and dissemination of
relevant information through the media have been supported directly by
Governments or through consumer organizations in Slovenia and Belarus,
among other countries.  Hotline telephone services have been
established in Belarus to provide advice to consumers as well as
institutes for consumer protection.  Measures for facilitating redress
to consumers also include the use of telephone services (hotlines),
for example in Peru, where this service accounts for over three
fourths of consumers' complaints.  The United States of America is
pursuing consumer protection activities in the areas of
telecommunication, protection of personal data and telemarketing.

15.  Activities for promoting international cooperation include the
provision of advisory assistance and the sharing of information and
training.  Trinidad and Tobago provided on-the-job training to
officers of other member States of the Caribbean Community on issues
of consumer protection, and Australia, through support provided to the
South Pacific Consumer Protection Programme, has assisted in the
development of consumer legislation and promotion of consumer
organizations in South Pacific island States, such as Papua New
Guinea, Solomon Islands, Samoa and Tonga.  Australia has promoted
training activities through the exchange of staff involved in issues
of consumer affairs with Canada and New Zealand.

16.  Governments recognize the important role of civil society, in
particular non-governmental organizations, in promoting consumer
protection.  In a number of countries, such as Trinidad and Tobago,
Ghana, Togo, Ecuador, Mexico, Italy, Slovenia, Belarus and Portugal,
collaborative relations have been developed between government offices
and consumer associations.  Germany has continued to support consumer
organizations that focus on consumer information and advice in the
food sector, energy conservation, and environmentally sound consumer
behaviour.  Support has also been provided to consumer organizations
in the organization of training seminars for the dissemination of
consumer information, the elaboration of programmes on consumer
education in schools, the protection of consumers on issues of redress
and solution of complaints.  The Government of Zimbabwe has continued
to support a related non-governmental organization working in this
area, thus creating an enabling environment for such organizations to
undertake many activities.  These include consumer education and
awareness programmes, assistance in the monitoring and enforcement of
standards (food, quality of goods and services), and in the
formulation of legislation, such as contracts, and the establishment
of dispute solving mechanisms, among others.  A consumer education
centre has been established in Belarus on the initiative of consumer
organizations.  In Cyprus, consumer associations have been
participating in consumer consultative committees to enhance the role
of the consumer in the decision-making process related to consumer
issues.


                  B.  Regional and international cooperation

17.  The Economic and Social Council, by its resolution 1995/53,
recognized the important role of civil society, in particular
non-governmental organizations, in promoting the implementation of the
guidelines for consumer protection.  The Department for Policy
Coordination and Sustainable Development of the United Nations
Secretariat has worked closely with the most prominent
non-governmental organization in the area of consumer protection,
Consumers International, both through its headquarters and its
regional offices in Africa, Europe, Asia and Latin America, in
activities designed to promote the implementation of the guidelines.

18.  A salient feature of this collaboration has been the organization
since early 1987 of a series of regional seminars and conferences on
consumer protection.  These seminars and conferences assist in
bringing together all the actors from both the public and private
sectors concerned with issues of consumer protection for exchange of
ideas and experiences, help to disseminate information on
developments, and establish the groundwork for legislative and
institutional development in the various regions on this area.

19.  During the period under review, Consumers International, in
collaboration with the Department for Policy Coordination and
Sustainable Development and with the support of the European Union and
the Government of Zimbabwe, organized the Africa Conference on
Consumer Protection, which was held at Harare from 28 April to 2 May
1996.  Government officials from over 35 African countries, consumer
leaders and experts from countries of the region, and members of the
international community concerned with issues of consumer protection
attended the Conference.  The Conference launched the Model Law for
Africa, designed to protect the African consumer and serve as a guide
for African Governments in their efforts to develop appropriate
policies and legislation and enforcement mechanisms in this area. 
Ghana has already indicated that the Model Law for Africa is being
studied for use in the elaboration of its national consumer protection
policy.

20.  The Conference recognized the important progress being achieved in
the promotion of the guidelines for consumer protection in Africa.  It
stressed the need for the countries of the region to strengthen
measures to enact and enforce consumer protection policies and
legislation, since there were still 16 countries in the region that
did not have consumer organizations or bodies concerned with issues of
consumer protection.  That was particularly important and urgent in
the light of the growing globalization and liberalization of the world
economy, and the potential impact of those trends on consumers at the
national level.  A number of areas that required the special attention
of the countries of the region were identified, in particular health,
safety, access to basic services and measures for redress.  The
Conference also examined the extension of the guidelines into other
areas, such as sustainable consumption patterns.

21.  In January 1997, Consumers International, through its regional
office for Asia and the Pacific, and the Consumer Unity and Trust
Society of India organized an international conference at New Delhi on
the theme "Consumers in the global age", in cooperation with the
Department for Policy Coordination and Sustainable Development and
with the support of the European Commission, the Governments of India,
the Netherlands and Sweden, and the United Nations Development
Programme (UNDP).  Other non-governmental organizations, such as
Consumers Union and the Freidrich Ebert Foundation, also provided
support for the conference.  The event was the second meeting on
consumer protection for the countries of the region; the first, a
regional seminar, was held at Bangkok in June 1990.

22.  The conference at New Delhi was attended by over 200 participants
from Governments, intergovernmental organizations, international and
national non-governmental organizations and experts from over 30
countries.  The conference reviewed the progress achieved in the
implementation of the guidelines for consumer protection in the
countries of the region, and considered the issue of the extension of
the guidelines into other areas.  Progress was made towards the
elaboration of a model law for consumer protection for the Asia and
Pacific region.  At the conference, an Asia and Pacific consumer
protection network of government officials of the countries of the
region was established, which a number of countries have already
joined.

23.  In Europe, the European Commission, apart from providing support
for the above-mentioned conferences and seminars, continues to adopt
legislation, regulations and directives in the field of consumer
policy.  The Commission's priorities for consumer policy in the period
1996-1998 included 10 broad areas of action, among which are efforts
to improve the education and information of consumers, the protection
of consumers' interests in the supply of essential services of public
utility, increased consumer representation, consumer aspects of
financial services, the improvement of consumer confidence in
foodstuffs, and the encouragement of a practical approach to
sustainable consumption.

24.  A number of countries, in particular Norway, Sweden, Italy,
Slovenia, Estonia and Cyprus, have stressed the importance of the role
of the European Commission in consumer protection.  Italy, Norway and
Sweden have taken steps to adapt their national policy on consumer
protection to European Union laws, regulations and directives, and
Slovenia has indicated that it will adapt its law on consumer
protection, currently under elaboration, to European Commission
directives.  Italy's approach to its national consumer policy is based
almost entirely on European Commission guidelines.  Germany has
considered the directives of the European Commission on various issues
of consumer protection, in particular on general food safety issues,
insurance legislation and regulations on the establishment of
contracts, and will adjust its national law on competition to European
Union competition legislation.  Sweden is working actively for
strengthened consumer influence within the Union, while strongly
supporting current work within the Union in connection with distant
sales, price information, transborder payments, guarantees, the
solution of disputes and questions related to foodstuffs.  Sweden and
Norway are active participants in the eco-labelling programme within
the European Union, under which, so far, some 900 products have been
awarded the Nordic Swan marking of excellence/quality.

25.  The majority of member countries of the Organisation for Economic
Cooperation and Development (OECD) have institutional and regulatory
frameworks in the field of consumer policy that generally cover all
the elements of the guidelines for consumer protection.  The OECD
Committee on Consumer Policy follows closely the implementation of the
guidelines in OECD member countries.


                         C.  The United Nations system

26.  Consumer protection issues are receiving increasing attention from
the organizations of the United Nations system.

27.  The Department for Policy Coordination and Sustainable Development
has not only developed a network of collaboration and partnership with
non-governmental organizations and relevant intergovernmental
organizations but also works closely in this area with concerned
organizations of the system, such as UNDP, the United Nations
Conference on Trade and Development (UNCTAD), the regional commissions
and the specialized agencies, with a view to ensuring the effective
use of its limited resources to maximize the impact of its activities. 
More specifically, in the area of consumer safety, the Department
continues to collaborate with World Health Organization (WHO) and the
United Nations Environment Programme/International Register of
Potentially Toxic Chemicals in the publication of the Consolidated
List of Products Whose Consumption and/or Sale Have Been Banned,
Withdrawn, Severely Restricted or not Approved by Governments.  The
List consolidates all information on products harmful to health and
the environment, and contains information on regulatory actions taken
by 94 Governments on over 700 pharmaceuticals, agricultural and
industrial chemicals.  In addition to WHO and the United Nations
Environment Programme (UNEP), the World Trade Organization (WTO), the
Food and Agriculture Organization of the United Nations (FAO) and the
International Labour Organization (ILO) also participate in this
activity.  The List is widely used by Governments and non-governmental
organizations in their efforts to consider the scope for regulatory
measures.

28.  UNCTAD has continued its activities for the promotion and
protection of consumers through its advisory services and technical
assistance programme.  The Set of Multilaterally Agreed Equitable
Principles and Rules for the Control of Restrictive Business Practices
(A/C.2/35/6, annex), adopted by the General Assembly in its resolution
35/63 of 5 December 1980, was revalidated by the Third United Nations
Conference to Review all Aspects of the Set in 1995.  In addressing
the area of competition law and policy, UNCTAD promotes innovative
activities by industry leading to a greater variety of goods and
services, and lower prices.  With the financial support of UNDP and
bilateral donors, UNCTAD provides advisory services to national
competition law agencies, organizes workshops and seminars, and
prepares technical studies and reports on issues of competition policy
and law.  These programmes, directed in particular to developing
countries and economies in transition, also assist in adapting to the
process of globalization and liberalization of trade.

29.  At its ninth session, held at Midrand, South Africa, in 1996,
UNCTAD gave prominence to consumer protection issues (see TD 378,
paras. 29, 43, 91 (III) and 97 (ii)).  Thus, related work of UNCTAD
will focus on the examination of the relevance of consumer protection
and competition to development, and will support strategies for
promoting national competition.  UNCTAD and the Department for Policy
Coordination and Sustainable Development of the United Nations
Secretariat will work closely in gathering information on the extent
to which countries have elaborated consumer protection legislation, as
well as on existing arrangements for the implementation of such
legislation.

30.  The UNEP Code of Ethics on the International Trade in Chemicals
encourages high levels of ethical conduct for private-sector parties
engaged in the production and management of chemicals, by setting out
principles governing standards for the environmentally sound
management of chemicals in international trade.

31.  In the period under review, the Economic Commission for Europe
(ECE) focused on the elaboration of standards for perishable produce. 
The ECE intergovernmental party on the standardization of perishable
produce and quantity development, in cooperation with the FAO/WHO
Codex Alimentarius Commission, has elaborated commercial quality
standards for perishable produce.  The standards facilitate trade
between exporters and importers, and also provide information on
health and general consumer protection criteria.  Workshops and
training seminars on commercial quality standards have taken place in
Eastern European countries to ensure adequate product quality control
and promote the awareness of consumers.  Standards on processed,
semi-processed and raw foods, including food hygiene and additives,
pesticide residues, contaminants, labelling and presentation, as well
as methods of analysis and sampling, have also been developed. 
Current negotiations on the protocols on nitrogen oxides and related
substances of persistent organic pollutants and heavy metals
increasingly address human health-related questions.  In addition,
action has been started to ban or restrict the use of 15 toxic
pesticides and other chemicals with implications of health risks.

32.  The Economic Commission for Latin America and the Caribbean
(ECLAC) continues to collaborate with Consumers International in the
area of consumer protection, including consumer legislation, trade,
economic integration and consumer protection, public services and
sustainable consumption.  ECLAC participated in the third Consumers
International regional conference for Latin America and the Caribbean
on economic integration and consumer protection, held at Sao Paulo in
October 1995, and it also participated in the first European and Latin
American Consumers' Congress, held at Madrid in November 1995, which
dealt with issues of legislation, development and consumer protection.

33.  The World Food Programme (WFP) observes specific recommendations
of the Codex Alimentarius Commission in the area of food safety and
security.  All shipments of food, including international and local
purchases of food products (which constitute approximately half of
WFP's annual food purchases), follow these recommendations.  WFP also
meets the Commission requirements in terms of the marking and
labelling of commodities it distributes.

34.  WFP has disseminated its logistic experience on distribution
facilities and quality control in a number of countries through
training of counterpart staff involved in transport and storage of
commodities, and in the establishment and improvement of harbour and
warehousing facilities, distribution centres and transport systems.

35.  In cooperation with the United Nations Children's Fund (UNICEF),
WFP has carried out nutrition education campaigns targeted to
vulnerable groups of population, in particular children, including
schoolchildren, pregnant women and nursing mothers.  WFP follows
established guidelines for the distribution of milk products while
promoting breastfeeding practices.

36.  FAO pays particular attention to the protection of consumers
against health hazards and economic losses associated with
contaminated and/or adulterated foods.

37.  The joint FAO/WHO Codex Alimentarius Commission, comprising 156
member countries, has continued to formulate international standards
and codes of practice on a wide range of food commodities, as well as
recommendations on issues related to food safety.  Generally, those
standards are adopted and incorporated in national legislation.  The
Uruguay Round of multilateral trade agreements also recognized those
standards as the benchmark for quality and safety requirements for
food in international trade.  The Commission promotes the adoption of
open date marketing and ingredient labelling, and it has adopted a
code of ethics related to the trade of food.

38.  During the period under review, a number of joint FAO/WHO
activities have taken place:  an expert committee on food additives
carried out evaluations on the toxicity of food additives, its
technical uses, and specifications for its identity and purity, and
provided advice on the acceptance levels of dietary intake of food
additives, contaminants, and residues of veterinary drugs in animal
products; an expert consultation on the application of risk analysis
to food standards provided advice on the use of risk analysis
principles in food standards development; a similar consultation on
risk management made recommendations on the application of risk
management in food safety matters; and a meeting on pesticide residues
evaluated the toxicity of pesticide residues in food, and provided
recommendations on the acceptable levels of those residues within the
context of international trade.  Those recommendations represent the
basis for related rules established by the Codex Alimentarius
Commission.

39.  In addition, a joint FAO/WHO consultation on the preparation and
use of food-based dietary guidelines and an FAO expert consultation on
nutrition education for the public produced a number of
recommendations on issues of nutrition education.  The resulting
publication, Get the Best from Your Food, has been translated into
several languages and adapted for use in a number of countries, and
two resource books, Human Nutrition in the Developing World and Food,
Nutrition and Agriculture for African Teachers, under publication,
should assist in training activities in nutrition, consumer protection
and food security.  An FAO meeting on the integration of consumer
interest in food control, for the countries of the Latin America and
Caribbean region, adopted recommendations to enhance the participation
of consumer representatives in the decision-making process related to
food quality control, consumer education and awareness.

40.  The UNEP/FAO programme on prior informed consent with respect to
agricultural, industrial and consumer chemicals, in which 125
countries participate, is expected to become legally binding in the
near future.  In accordance with the provisions of the programme, an
international shipment of a chemical or pesticide that is banned or
severely restricted or is known to be causing health or environmental
problems will not proceed without the explicit agreement of the
designated national authority in the importing country.  Any decision
banning or severely restricting the import of a chemical must also
apply equally to production for domestic use.

41.  The United Nations Industrial Development Organization (UNIDO)
programme on risk reduction in the agrochemical industry, comprising
the regional network for pesticides in Asia and the Pacific, and the
Afro-Arabic network for risk reduction in agrochemicals development,
has included the development of guidelines and the adoption of
international standards on agrochemicals production and use.

42.  UNIDO, in cooperation with UNICEF and UNDP, also promotes the use
of iodized salt for the elimination of iodine deficiency disorders;
data collection, quality control and control of the iodine content of
salt have been emphasized.  Attention has also been given to work
related to pharmaceuticals.  A project entitled "Integrated
development of national pharmaceutical industry", conducted in the
Syrian Arab Republic, included the provision of advisory services for
the elaboration of related policy and legislation, including consumer
protection.  A project entitled "Development of the pharmaceutical
industry", conducted in Thailand, included the establishment of the
Pharmaceutical Technology Service Centre of Thailand.  The Centre has
assisted 125 pharmaceutical enterprises in obtaining certification on
good manufacturing practices, is assisting the pharmaceutical industry
in the procurement of export licences, and is also cooperating with
organizations of the United Nations, such as the Economic and Social
Commission for Asia and the Pacific (ESCAP), WHO and the World Bank.

43.  A joint venture between UNIDO and the International Vaccine
Institute of Seoul, Republic of Korea, included two global training
workshops on quality assurance, good manufacturing practices and
quality control for vaccine manufacturing, and management of vaccine
manufacturing enterprises.  These workshops, held at Bandung,
Indonesia, and Beijing, respectively, also addressed consumer
protection issues, such as adverse reactions to immunization and more
generally of customer satisfaction.  Workshops on good manufacturing
practices in the pharmaceutical sector and on validation of
pharmaceutical manufacturing processes took place at Montreal and at
Bogota, respectively, and were aimed at introducing quality management
systems.

44.  The International Civil Aviation Organization (ICAO) revised the
code of conduct for the regulation and operation of computer
reservation systems, which was subsequently adopted by the ICAO
Council.  The code provides, inter alia, for the safeguarding of the
privacy of personal data of passengers, including the requirement that
air passengers using computer reservation systems for booking and
ticketing flights be kept informed of code-shared flights that involve
two or more operators.

45.  ICAO has published a manual on the regulation of international air
transport to promote the dissemination of  information and advice for
air transport users and shippers.  The publication, entitled "Policy
and guidance material on the regulation of international air
transport", provides information on international air fares and rates,
including rules and conditions associated with scheduled passenger
fares, information on baggage allowances and charges to passengers,
and related redress and compensation measures.

46.  As recommended by the ICAO conference on international air
transport regulation of 1994 (see ICAO/Doc. 9644), the work of ICAO
will continue to take into account the promotion of consumers'
economic interests.


                      D.  Non-governmental organizations

47.  As noted above, the collaborative relationship established between
the Department for Policy Coordination and Sustainable Development of
the United Nations Secretariat and civil society, in particular
non-governmental organizations concerned with issues of consumer
protection, such as Consumers International, continues to be
strengthened.  Without the leadership provided by Consumers
International and the close United Nations cooperation with it that
has developed over the years, it would not have been possible to carry
out the international programme of regional seminars and conferences
within existing resources.

48.  Currently, discussions are being undertaken on the formulation of
a memorandum of understanding between Consumers International, the
Department for Policy Coordination and Sustainable Development of the
United Nations Secretariat and UNCTAD to strengthen international
assistance for consumer protection policy and legislation through a
programme of joint action.  It is intended that Consumers
International, the Department and UNCTAD will cooperate, inter alia,
in the promotion of national consumer protection law and consumer
protection policy formulation, including issues covered in the
guidelines for consumer protection, the Midrand Declaration on
technical cooperation in this area (see para. 29 above), the
development of national and international competition law, and
research on consumers issues, including sustainable development and
consumption patterns.

49.  The International Cooperative Alliance (ICA), a non-governmental
organization serving the world cooperative movement and bringing
together more than 200 national and international cooperative
organizations from nearly 100 countries, devotes nearly 25 per cent of
its resources to the consumer sector.  ICA holds consultative status
with the Economic and Social Council.  Consumer cooperatives, in
providing goods and services specified by consumers, contribute to the
promotion of consumer awareness and education.  Generally, such
organizations contribute to achieving consumer rights at the national
and international levels.  In particular, through its subsidiary body,
the International Consumer Cooperative Organization, issues of
standards of safety and healthy environment, access to goods at fair
prices with reasonable variety and choice, access to information on
goods and education on consumer information are being advanced by the
cooperative movement.


                II.  THE GUIDELINES FOR CONSUMER PROTECTION AND
                     SUSTAINABLE CONSUMPTION PATTERNS          

50.  The issue of sustainable consumption patterns was raised in a
global context at the United Nations Conference on Environment and
Development (UNCED), held at Rio de Janeiro, in 1992, where it was
embodied in chapter 4 of Agenda 21.

51.  A more environmentally conscious consumer public, combined with
increased interest on the part of industry in providing
environmentally sound consumer products, is an important dimension of
sustainable consumption.  Consumer consciousness of the link between
consumption and the environment has increased.  But although consumers
may be more aware of their greater responsibility in the relationship
between environment and consumption patterns, that awareness can only
be translated into action if consumers are given the necessary
information to make the right choices and thus bring about
environmentally sound consumption patterns and lifestyles.

52.  The role of Governments in shaping consumption patterns, in
particular in countries where the public sector plays an important
role in the economy, continues to be of utmost importance.  A number
of Governments have reported on the progress being made in that area
of work.  Germany has promoted projects in the field of environmental
advice to foster environmentally oriented product information and
awareness aimed at achieving environmentally sound consumer behaviour. 
Norway has developed a project entitled "Green Household Budget", by
which information and advice on purchasing and use of products towards
sustainable production is provided to consumers.  Norway has also
hosted two international conferences on sustainable production and
consumption:  a ministerial round table held at Oslo and an
international conference on sustainable consumption, held at
Lillehammer.  As a result of those meetings, the Norwegian Research
Council has established a research programme on sustainable production
and consumption.  Also, the Governments of Brazil and Norway organized
a symposium on sustainable production and consumption patterns at
Brasilia from 25 to 28 November 1996.  The results of the meeting
concentrated on the policy options available for making patterns of
consumption and production more sustainable.  The meeting agreed that
consumption and production patterns is an issue that has the common
interest of and deserves additional international cooperation between
industrialized and developing countries.

53.  The United States of America has been promoting the achievement of
sustainable consumption through a public outreach and education
programme of its Environmental Protection Agency.  This office also
maintains an Internet site on recycling and the use of recycled
products.  The Consumers Office of Mexico promotes the dissemination
of information to consumers on consumption and environmental
protection, the adequate use of energy, recycling measures, and
carries on training programmes for sustainable development.  An
international forum on the theme "Consumption at the end of the
millennium" dealt with issues of consumption, consumers organizations
and advertising and media.

54.  Sweden considers that the extension of the guidelines for consumer
protection should be part of consumer policy at the level of the
European Union, and also within the framework of the Nordic Council of
Ministers and OECD.  OECD considers the area of sustainable
consumption as an important field to be included in relevant
guidelines for consumer protection.  Currently, an overview of member
countries' activities on issues concerning sustainable consumption
patterns is being prepared by OECD.

55.  As noted earlier, with the rapidly changing international economic
environment, consumer organizations have expressed the need to review
the guidelines for consumer protection and to expand their scope to
cover new areas where consumer protection is desirable.  Interest has
been indicated, for example, in extending the guidelines to include
issues of public utilities in such areas as telecommunication and
transport services, where there may be a growing need to protect
consumers' interests.  Another area of concern embodies the service
sector, in which insurance, banking and investment, as well as lending
and borrowing conditions, have all been transformed by the use of new
technology and more competitive markets.

56.  The Africa Conference on Consumer Protection (see paras. 19 and 20
above) considered possible guidelines for issues of basic services,
including public utilities (health, water, electricity, gas);
financial services (credit reporting with privacy protection,
regulated rates and terms, disclosure of costs and terms of credit);
and consumer representation (representation in trade negotiations,
setting of products standards, and the need for mechanisms for
consumer participation in decision-making processes).  The Asia and
Pacific conference on the theme "Consumers in the global age" (see
paras. 21 and 22 above) identified elements for guidelines on
sustainable consumption; the active participation of consumer groups
in the elaboration of guidelines and in the decision-making process;
the introduction of environmental taxation or incentives and
disincentives on natural resource-depleting production and consumption
activities; the dissemination of verifiable information to consumers
on the development of advertising codes and standards; and the
regulation and verification of environmental claims.  The areas of
financial services, new technologies, especially in communications,
and consumer services were also cited as requiring new policy
provisions.  Other suggestions emanating from the recent symposium on
sustainable production and consumption patterns, held at Brasilia in
1997 (see para. 52 above), include the need to integrate sustainable
development at the level of government decision-making with a view to
ensuring that macroeconomic policies for liberalization and
deregulation promote environmental improvement.  Also, the importance
of the role of Governments as major consumers was stressed, in that
Governments can help shape markets through their use of goods and
services and the incorporation of environmental criteria into
procurement policies.


                     III.  CONCLUSIONS AND RECOMMENDATIONS

57.  As indicated in the brief overview presented above, considerable
progress has been made in the implementation of the guidelines for
consumer protection in terms of measures undertaken for the protection
of the consumer at the national level and strengthening cooperation at
the regional and international levels.  There has been a surge in
public awareness of consumer issues, especially in terms of the
sustainability of consumption patterns and the need to protect the
interests of consumers in a globalized world economy.  The consumer
movement is gaining momentum in all regions, and public policy is
being strengthened in response to those developments.  But, much
remains to be done, and action by Governments is essential.  At the
regional and international levels, the role of the United Nations
system of organizations, with the support of member States and in
collaboration with major groups, such as non-governmental
organizations, is equally important for mobilizing support and
providing assistance in adopting measures at the national level for
the protection of consumers.  The success of collaborative activities -
 such as the series of regional conferences and seminars promoted by
the United Nations in collaboration with members of civil society
(including non-governmental organizations, such as Consumers
International), donors and host Governments - points to the need to
maintain and strengthen such collaboration for the cost-effective use
of limited resources in further work.

58.  The Council may wish to recommend continued national and
international efforts to ensure the effective implementation of the
guidelines for consumer protection by all the actors concerned,
including Governments, as well as to ensure continued close
cooperation to that end among the organizations and bodies of the
United Nations system, other intergovernmental organizations and major
groups, in particular non-governmental organizations.

59.  In the period ahead, the elaboration of guidelines to cover
sustainable consumption patterns will require particular attention. 
The outcomes of the regional conferences held over the past two years,
the work undertaken by intergovernmental organizations, such as OECD
and the European Union, and  initiatives by individual countries have
all prepared the ground for a concerted effort to expand the scope of
the guidelines for consumer protection to cover sustainable
consumption patterns, as well as other areas, such as new information
systems, telecommunication, transborder trade and consumer services,
including financial services.  As a first step to that end, the
Council may wish to call for an interregional expert group meeting to
elaborate recommendations for guidelines on sustainable consumption
patterns, for submission to the Council, at its substantive session in
1998, through the Commission for Sustainable Development.


                                     Note

     1/  See Official Records of the Economic and Social Council, 1995,
Supplement No. 12 (E/1995/32), para. 45.


          

Date last posted: 29 November 1999 12:16:05
Comments and suggestions: esa@un.org