Leitsatz

1. Effektiver verwaltungsgerichtlicher Eilrechtsschutz (Art. 19 Abs. 4 Satz 1 GG) hat die Aufgabe, irreparable Entscheidungen, wie sie durch die sofortige Vollziehung einer hoheitlichen Maßnahme eintreten können, soweit wie möglich auszuschließen. Auf das Vorliegen eines überwiegenden öffentlichen Interesses kann deshalb selbst bei offensichtlicher Erfolglosigkeit eines Rechtsbehelfs in der Hauptsache nicht verzichtet werden. 2. Es bedarf stets einer Abwägung der konkurrierenden Interessen. Vor allem bei Eingriffen in Grundrechte, namentlich der Berufsfreiheit (Art. 12 Abs. 1 GG) und des Rechts am eingerichteten und ausgeübten Gewerbebetrieb (Art. 14 Abs. 1 GG), setzt die Annahme eines überwiegenden öffentlichen Interesses Gründe voraus, die in einem angemessenen Verhältnis zu der Schwere des Eingriffs stehen und ein Zuwarten bis zur Rechtskraft des Hauptsacheverfahrens ausschließen. Insoweit ist nicht nur die Möglichkeit milderer Mittel in Erwägung zu ziehen, sondern zugleich auch zu berücksichtigen, dass der Rechtsschutzanspruch des Bürgers umso stärker wiegt und umso weniger zurückzustehen hat, je schwerer die ihm auferlegte Belastung wiegt und je mehr die Maßnahmen der Verwaltung Unabänderliches bewirken. 3. Lässt der Sofortvollzug den Eintritt schwerer und irreparabler Folgen erwarten, so kann regelmäßig nur ein besonders großes Vollzugsinteresse eine Anordnung der sofortigen Vollziehung rechtfertigen. Ob ein solches Interesse vorliegt, ist durch Erwägung aller für und gegen die sofortige Vollziehung streitenden Gründe zu ermitteln. Das Kreislaufwirtschafts- und Abfallrecht bewirkt insoweit keine Veränderung der verfassungsrechtlichen Maßstäbe, insbesondere gestattet es keine Risikovorsorge "ins Blaue". 4. Die Abfalleigenschaft eines Stoffes oder Gegenstandes endet bei Vorliegen der in § 5 Abs. 1 KrWG normierten Bedingungen unmittelbar qua Gesetz ohne konstitutive Feststellung durch Verwaltungsakt. Das Vorliegen dieser Voraussetzungen unterliegt uneingeschränkter verwaltungsgerichtlicher Kontrolle. Ein Prognose- oder Beurteilungsspielraum der Behörden existiert nicht. 5. Die materielle Beweislast für die Tatsachen, die nach der zugrundeliegenden Norm Voraussetzung für die durch den Verwaltungsakt angeordnete Rechtsfolge sind, wie etwa das Fortbestehen der Abfalleigenschaft, trägt im Rahmen der Eingriffsverwaltung stets die Behörde. Anders verhält es sich nur dann, wenn der Erlass eines sog. "Produktanerkennungsbescheids" bzw. "Negativattests" begehrt wird. Insoweit trägt allein der Antragsteller die Darlegungs- und Beweis bzw. Feststellungslast für das Vorliegen der Voraussetzungen der ihm günstigen Norm. 6. Durchlaufen hat Abfall ein Verwertungsverfahren im Sinne von § 5 Abs. 1 KrWG dann, wenn er infolge des auf ihn angewendeten Verfahrens andere Materialien ersetzt oder so vorbereitet ist, dass andere Materialien substituiert werden. Es genügt die Nutzung irgendeiner Beschaffenheit des Stoffes und die Erzielung irgendeines Erfolges, der über die bloße Beseitigung hinausgeht und diese vermeidet. Ein substantieller Eingriff in die Beschaffenheit des Stoffes oder Gegenstandes ist dabei nicht erforderlich. Zur Beendigung der Abfalleigenschaft können bereits Verfahren der Prüfung (Sichtung), Reinigung und geringfügigen Reparatur genügen. Auch die Herstellung eines Vorprodukts kann bereits ein "Durchlaufen" eines Verwertungsverfahrens darstellen. 7. Die Frage, ob Stoffe üblicherweise für bestimmte Zwecke verwendet werden (§ 5 Abs. 1 Nr. 1 KrWG), bestimmt sich grundsätzlich nach objektiven Kriterien, wobei der Verkehrsanschauung maßgebende Bedeutung zukommt. Allerdings sind Abfallerzeuger und -besitzer regelmäßig frei, neue Verwertungsverfahren zu "erfinden". Durch die Verwendung des Begriffes "üblicherweise" sollen lediglich reine Phantasieprodukte ausgeschlossen werden. 8. Liegen einschlägige technische Anforderungen oder Rechtsvorschriften im Sinne von § 5 Abs. 1 Nr. 3 KrWG nicht vor, so kommt die Regelung nicht zur Anwendung, vielmehr ist in materieller Hinsicht alleine auf § 5 Abs. 1 Nr. 4 KrWG abzustellen. Das Fehlen besonderer technischer Anforderungen oder Normen steht dem Ende der Abfalleigenschaft nicht per se entgegen. 9. Die Unschädlichkeit der Verwendung im Sinne von § 5 Abs. 1 Nr. 4 KrWG erfordert eine gesicherte Prognose, dass der Stoff oder Gegenstand in seiner konkreten Anwendung nicht zu schädlichen Auswirkungen auf die Umwelt oder die menschliche Gesundheit führen kann. Umwelt- und Gesundheitsgefahren dürfen hierbei generell nicht entstehen, sodass entsprechende Risiken sowohl beim konkret angewendeten Verfahren in Bezug auf Stoffe oder Gegenstände als auch durch das Produkt als solches ausgeschlossen sein müssen. 10. Das Kreislaufwirtschafts- und Abfallrecht gestattet keine Risikovorsorge "ins Blaue". Stets bedarf es einer hinreichend tragfähigen Prognosebasis. Eine solche liegt nur bei einem entsprechenden Gefahrenbezug vor. Eine Risikovorsorge unterhalb einer definierten Gefahrenschwelle kommt deshalb regelmäßig nicht in Betracht. Eine Vermeidung um der Vermeidung willen kann nicht Gegenstand einer Vorsorge sein, soll diese nicht ins Unkontrollierbare absinken.

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