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Waste Strategy 2005-08

Appendix C

Capacity

• C.1. Capacity - incineration plants
• C.2. Landfill capacity
• C.3. Capacity - hazardous waste

C.1. Capacity - incineration plants

C 1.1 Volumes of waste, capacity and catchment areas

In 2001, approx. 2.9 million tonnes of waste were treated at Danish incineration plants. A further approx. 300,000 tonnes of municipal sewage sludge were incinerated at specific sludge incineration plants.

A ban on landfilling waste suitable for incineration was introduced on 1 January 1997. Increases in volumes of waste and delays in the conversion to co-generation (combined power and heating generation), led to a capacity shortfall in the years immediately after 1997. Over the last few years incineration capacity has been expanded so that by 2001, this capacity was basically in balance with the volumes of waste. While there is balance at national level, there are wide regional variations. For example, there is overcapacity in Eastern Denmark, but only just adequate capacity in other regions.

As of 1 January 2003, there were a total of 32 waste incineration plants in Denmark, including a newly opened plant in Esbjerg. Since 1991, six old incineration plants have been phased out, and the oldest incineration plant in operation today was built in 1969.

At the end of 1999, the total number of oven lines was 68, divided into 32 co-generation (CHP) and 36 hot water generating (HW) oven lines. The policy has been to ensure maximum energy utilisation and to shift as much waste as possible to CHP plants. In 1999, plant incineration capacity varied between 12,000 and 500,000 tonnes annually. Of the total volume of waste incinerated, 64 per cent was treated at CHP plants and 36 per cent at HW plants.

In 2001, waste contributed approx. 32 million GJ to the energy supply in Denmark. In the same year, approx. 130 million GJ of energy was used to produce electricity in Denmark, with approx. 3.5 per cent of this energy deriving from waste. Approx. 128 million GJ was used to generate district heating, with approx. 22 per cent deriving from waste. Thus approx. 86 per cent of the energy content in waste in Denmark was converted into district heating, while the remaining 14 per cent was converted into electricity.

Aim: regional balance

A number of waste regions have been defined in this plan. A waste region is a well-defined geographical area within which co-operation on exploitation of incineration capacity etc. is logical and expedient. The basis for the division into regions is the Danish Environmental Protection Agency Briefing no. 11, 2001 – Waste Incineration 2004 and 2008, volumes and capacities. In this briefing, Denmark is divided into 5 regions: Zealand, Bornholm, Funen, Mid and Southern Jutland and Northern Jutland.

Danish waste management policy aims at ensuring sufficient capacity within each waste region to treat the volume of waste suitable for incineration generated in the region. This policy maintains the principle of self-sufficiency within each waste region and the principle that waste suitable for incineration should, as far as possible, be treated at nearby incineration plants.

Incineration capacity and volumes of waste in Denmark for 1999 and 2008 ^[1] are shown below.

The figures for 1999 reflect the actual volume of waste suitable for incineration supplied to waste incineration plants in Denmark. The volume of waste suitable for incineration that was stored temporarily during this period has not been included. The volume of waste suitable for incineration in 2008 is a projection of data reported to ISAG (the Danish Information System for Waste and Recycling) combined with waste projections from the RISØ model, which are based on the economic development in the ADAM model.

The table below compares the national volume of waste with the total incineration capacity in 1999.

From the table it can be seen that there was basically a balance between the incineration capacity and the volume of waste for incineration in 1999. The forecast up until 2008 is for a significant increase in incineration capacity and a more modest increase in the volume of waste, such that in 2008 there will be adequate incineration capacity in all regions. The tables below describe the situation in the five regions in 1999.

Regions

For Zealand, expansions have been planned and approved that will lead to a surplus in incineration capacity in 2008.

As can be seen above, there is a slight shortage of incineration capacity on Bornholm. However, there are currently no plans to extend capacity.

According to the table, it appears there is already surplus capacity on Funen. However, a long-term agreement has been made regarding the delivery of 48,500 tonnes of waste annually to the Funen plant from KAVO/Noveren on Zealand.

There was a slight capacity surplus in Northern Jutland in 1999. Expansion to the capacity at Reno North is planned during the period, so there is also expected to be adequate incineration capacity in 2008.

There was a shortage of capacity in Mid and Southern Jutland in 1999. A significant quantity of waste from this region has therefore been stored. In 2003, a new incineration plant is expected to commence operations in Esbjerg, and from this point on there is expected to be adequate incineration capacity in the region.

Calorific value

The calorific value of incineration waste fell from 10.7 GJ/tonne in 1996, to 10.5 GJ/tonne in 1999. The calorific value of waste is closely linked to the separation of fractions such as paper and cardboard and organic domestic waste. Separating out various fractions leads to various effects on the calorific value of the remaining waste. Separation of organic domestic waste would, for example, lead to an increase in the calorific value, whereas increased separation of paper, cardboard and plastic would lead to a reduction.

Meat-and-bone meal

The more stringent regulations governing the use of meat-and-bone meal have meant that an increased volume of abattoir waste, previously used for animal feed, must now be incinerated. The annual volume of meat-and-bone meal incinerated is estimated to be approx. 150-180,000 tonnes. This fraction has a typical calorific value of 16 GJ/tonne, making this volume equivalent to 230-275,000 tonnes of normal waste suitable for incineration (with a calorific value of 10.5 GJ/tonne).

As far as possible, waste suitable for incineration is treated at the closest waste incineration plant

In Denmark, waste suitable for incineration is generally incinerated within the regions described above, although waste suitable for incineration is sometimes transported between the individual waste regions.

Modest potential to improve efficiency at Danish waste incineration plants

Analysis of efficiency at Danish waste incineration plants

The Ministry of Finance's Environmental Assessment of the Finance Bill for 2000 stated that: "increased efficiency, for example through outsourcing and benchmarking within the waste sector, would make it possible to achieve the same environmental quality at lower cost". The Danish Environmental Protection Agency therefore decided to carry out benchmarking of incineration and landfill plants in Denmark. The analysis, completed in early 2002, showed that there is a potential to realise savings of DKK 135-155 million in the area of incineration in 2000, equivalent to 8-10 per cent of total expenses. This represents a relatively modest potential.

C 1.2 Capacity utilisation

In 1999, capacity was maximally utilised

In 1999, a total of approx. 2.7 million tonnes of waste were supplied to waste incineration plants, corresponding to a capacity utilisation of 100 per cent.

Temporary storage

In recent years where there has been a capacity shortfall, waste suitable for incineration has been stored temporarily, waiting to be incinerated when the necessary capacity became available. At the end of 1999, 635,000 tonnes of waste suitable for incineration was in storage. The majority of this waste is stored on Zealand, where there is now adequate capacity for the waste to be delivered for incineration. Waste suitable for incineration is still being stored in the catchment area surrounding the new incineration plant in Esbjerg, as the new plant will only be commissioned in mid-2003. The accumulated stores will then be gradually reduced. Overall, the stores of waste suitable for incineration are expected to be consumed before the end of 2010.

C 1.3 Objectives and future initiatives

Objectives

• incineration capacity adapted to actual needs.
• optimum energy utilisation, largest possible CO2 mitigation
• regional self-sufficiency in terms of incineration capacity.

The total volume of waste to be incinerated in 2008 is expected to be greater than the present volume. Some of the planned initiatives for increased recycling will shift waste away from incineration, but other factors will have the opposite effect. The ban on landfilling of waste suitable for incineration has shifted large volumes of waste from landfilling to incineration. However, it is believed that the planned expansions will provide sufficient capacity to meet incineration requirements in 2008.

The aim is to adapt capacity to meet actual needs and locate capacity in a way that allows for the best possible energy utilisation and largest possible CO2 mitigation, while also taking into account the principle of regional self-sufficiency in terms of incineration capacity.

Much incineration capacity is currently based purely on hot water generation. It is estimated that after 2004, it will continue to be necessary to utilise the capacity of several of these ovens. However, these ovens are being gradually phased out as new ovens are being built, and in 2008, approx. 95 per cent of waste for incineration is expected to be processed in CHP ovens.

C 1.4 Regulation

Under the terms of the Statutory Order on Waste ^[2], municipalities are required to ensure that waste suitable for incineration which is not recycled is assigned to incineration at approved incineration plants, and that sufficient incineration capacity is available for waste suitable for incineration.

However, municipalities have the option to permit temporary storage of waste suitable for incineration at landfill sites for less than one year. If the waste is to be stored for a longer period, permission from the Danish Environmental Protection Agency is required.

New waste incineration plants are approved today under Part 5 of the Danish Environmental Protection Act. Prior to approval, regional authorities must carry out an EIA (Environmental Impact Assessment) ^[3]. Authorities must also respect the terms of the Electricity Supply Act ^[4] and the Heating Supply Act ^[5] in their approval.

EU directive on waste incineration is expected to lead to stricter environmental requirements

The new EU Directive on waste incineration places more stringent environmental requirements on Danish incineration plants in terms of dioxin and NOx emissions. The Directive has been implemented in a new Statutory Order on waste incineration.

Incineration plants planned in recent years have been designed to meet the future requirements. This year, two thirds of Danish waste is being incinerated at plants that are capable of complying with the new lower limit value, and by the end of 2004 this will have increased to 90 per cent.

In 2002, the Government appointed a work group consisting of a number of players from the area of waste management. This work group has been charged with examining whether waste management can be organised more efficiently. The work of the work group is described in detail in Chapter 1, but involves achieving the potential efficiency improvements that were shown to exist for incineration plants. To this end, a project has been initiated to identify the advantages and disadvantages associated with varying degrees of deregulation in the area of incineration and landfill. The project was initiated at the beginning of 2003 and is expected to be completed mid-2004.

In 2002, the Government published a discussion paper on deregulation of the energy markets, including the electricity, heating and gas sector. This discussion paper discusses the Government's long-term goals of promoting deregulation and competition, and reducing the costs of energy supply.

In July 2002, the Danish Energy Authority submitted a draft Statutory Order on price ceilings for services from waste incineration plants for public hearing. The hearing responses showed that further work is needed on the price ceiling model. This work is expected to be carried out in 2003, after which the final model will be submitted for public hearing.

C 1.5 Implications for national authorities

Developments in the volumes of non-recyclable waste suitable for incineration will be monitored nationally and regionally with the aim of ensuring sufficient incineration capacity.

C 1.6 Implications for municipalities

Municipalities are required to account for the volume of waste incinerated in relation to the available capacity in their municipal waste management plans. In this context, municipalities must indicate how they plan to reduce the volume of waste suitable for incineration in temporary storage, and any need for additional incineration capacity.

C.2. Landfill capacity

C 2.1 Volumes of waste going to landfill sites

In 2001, 1.3 million tonnes of waste were landfilled in Denmark. As the figure below indicates, there has been a significant reduction of more than 0.5 million tonnes in the total annual volume of landfilled waste from 1998 to 2001. The figure also indicates that the reduction in the total volume of landfilled waste from 2000 to 2001 is primarily due to a fall in the volumes of landfilled household waste.

In contrast to the situation in the 1994-1997 plan period, the volume of landfilled slag and fly ash from coal-fired power plants has largely been eliminated. In 1994, approx. 600,000 tonnes of slag and fly ash from coal-fired power plants were landfilled, whereas only approx. 10,000 tonnes were landfilled in 2001. This reduction is due to the limitation of coal-based energy production (cf. the objective in Energy 21) and the fact that it has been possible to recycle almost all the slag and fly ash generated from coal-fired power plants.

C 2.2 Regional planning

Based on information supplied by municipalities (who are responsible for actual waste planning), regional authorities must ensure their regional plans set aside areas for the necessary landfill and waste incineration capacity throughout the entire planning period. Any export or import of waste must also be taken into consideration.

To ensure a balance between the expected volumes of waste and existing and/or planned capacity, regional plans must provide an overall statement of

waste treatment capacity and possible locations for waste treatment plants being considered. The revision of the regional plan in 2001 showed that there was generally sufficient landfill capacity for the four-year plan period.

When locations need to be chosen for new waste treatment plants, a number of criteria must be considered. These criteria are:

Guidelines from the Ministry of the Environment and Energy on coastal landfills, memorandum of 27 December 1991, and Ministry of the Environment and Energy Statutory Order no. 921 of 8 October 1996 on quality standards for the aquatic environment and requirements for discharge of certain dangerous substances into inland waters or the marine environment ^[6]. This Statutory Order bans location of landfills in areas where discharges of leachate may cause pollution of inland waters and the marine environment. Landfills should not be located near sensitive aquatic environments.

When planning large building and construction works, consideration should also be given to utilising inorganic residues. Many construction works are currently planned and carried out without giving consideration to utilising such residues, leading to a loss of resources and an increased need for landfill sites.

Any changes in regional planning have to be incorporated in a subsequent regional plan supplement.

In general, landfills are covered by regulations on EIA in the Planning Act (assessment of the effect of certain public and private projects on the environment). This is always the case for landfilling of hazardous waste.

C 2.3 Future capacity at Danish landfills

Temporary storage of waste suitable for incineration.

Waste volume projections need to be carefully reviewed to ensure that sufficient landfill capacity is available. It is also necessary to ensure sufficient space is available for temporary storage of waste suitable for incineration. However, the need to store temporarily waste suitable for incineration is expected to be relatively small in the future, and the waste currently in temporary storage is expected to be eliminated by the end of 2010.

The volume of residues from waste incineration (slag and flue gas cleaning products) is expected to increase slightly. In a letter of 24 August 1998 from the Ministry of Environment and Energy, three municipalities and their counties have been directed to keep relevant sites available for the establishment of landfills for flue gas waste. Flue gas cleaning products are currently exported to either Norway or Sweden for landfill.

The volume of bioash (from straw and wood chips) is rising, but most of this can be recycled for agricultural purposes in accordance with the Statutory Order on Bioash ^[7]. However, some special fly ash will be landfilled due to high levels of cadmium.

Conclusion

Up until 2008, there is sufficient landfill capacity at national level, but there are large regional differences – due in part to the availability of suitable sites for landfills. In addition, experience has shown that planning should be carried out with a 12-year horizon. The current trend is for capacity considerations to be restricted to a four-year period.

C.3. Capacity - hazardous waste

C 3.1 Status

Hazardous waste covers waste from both primary and secondary sources (e.g. residues from waste incineration plants). In 2001, 288,154 tonnes of hazardous waste were generated from primary sources (approx. 2 per cent of the total volume of waste) and 86,149 tonnes from secondary sources. Waste from secondary sources is not counted in total waste production, as otherwise these volumes would be counted twice.

An overview of the most significant hazardous waste fractions and their treatment is given in Table C 3.1, below.

Table C.3.1. Overview of the most significant sources of hazardous waste, divided by form of treatment

Source: Waste Statistics 2001, Danish Environmental Protection Agency 2003

Of the total volume of hazardous waste from primary sources:

25 per cent is recycled:

• lead accumulators and Ni-Cd batteries are collected and sent for reprocessing in Sweden or France.
• oil waste is reprocessed at Dansk Oliegenbrug.

32 per cent is incinerated:

• waste oil is disposed of at district heating plants and at Kommunekemi A/S.
• health-care risk waste is treated at SWS (Special Waste System in Nørre Alslev) and at conventional waste incineration plants.

6 per cent receives special treatment:

• organic halogen-free compounds are treated at Kommunekemi and BOFA.

37 per cent is landfilled:

• asbestos and contaminated soil is deposited at special landfills.
• shredder waste is landfilled at 4 landfill sites in Denmark.

Cars that have not had liquids or other hazardous components removed are classified as hazardous waste. The Statutory Order on end-of-life vehicles lays down regulations for the waste treatment of end-of-life motor vehicles and derived waste fractions. End-of-life passenger and commercial vehicles must be delivered to registered enterprises that have established a certified environment or quality management system. Other types of end-of-life vehicles must be delivered to approved scrapping enterprises.

There are approx. 210 registered enterprises that can treat vehicles in accordance with the regulations in the Statutory Order on end-of-life vehicles. There is an additional small number of scrapping enterprises that scrap other types of vehicles and end-of-life vehicles that have been treated at a registered scrapping enterprise. There are a further six shredder enterprises where vehicle waste is shredded and sorted.

>Batteries

The collection of batteries is regulated under the Statutory Order on Waste+ ^[8]. Nickel-cadmium batteries, lead accumulators and unsorted batteries are classified as hazardous waste, whereas pure fractions, for example made up of batteries that do not contain heavy metals, are generally not considered as hazardous waste.

The collection of lead accumulators is covered by an agreement between the Minister for the Environment and the battery industry (Returbat), under which Returbat is responsible for collecting all spent lead accumulators in Denmark. There are approx. 80 collection agencies registered under the Returbat agreement. In 2001, approx. 16,900 tonnes of lead accumulators were collected.

The Environmental Protection Agency manages a collection scheme for nickel-cadmium batteries. In connection with the scheme, a Statutory Order ^[9] has been issued, stipulating the criteria collectors of spent nickel-cadmium batteries must meet in order to be registered as professional collectors. Approx. 20 collectors of nickel-cadmium batteries are registered under the scheme. The batteries are sent for reprocessing either in Sweden or France. In 2001, approx. 91 tonnes of nickel-cadmium batteries were collected.

Electrical and electronic equipment

The collection and reprocessing of electrical and electronic products is currently regulated by Statutory Order no. 1067 of 22 December 1998 on the management of waste from electrical and electronic products.

In 2001, 21,200 tonnes of electronic scrap was collected and specially treated. Of the total volume of electrical and electronic equipment, it is estimated that a further 10,000-20,000 tonnes will be collected and treated separately.

Approx. 20 disassembly enterprises exist today.

Current capacity is approx. 90,000 tonnes annually, and no capacity problems are expected in the future.

A number of enterprises have emerged that pre-treat hazardous waste, for example, by separating non-hazardous fractions from hazardous waste (e.g. oil filters, paint drums, and water in waste oil). The hazardous fractions are mainly delivered to Kommunekemi A/S, or to district heating plants (waste oil). The non-hazardous fractions are delivered to incineration or recycling.

For a few waste fractions (silver from the photographic industry and organic solvents) recycling enterprises exist (that recover silver or coolants, etc.), but in general, very few treatment methods have been developed for the recovery or recycling of hazardous waste fractions.

Secondary sources

Some residues from waste incineration plants are hazardous waste.

These are the filter dust from flue gas cleaning, fly ash and flue gas cleaning products from the waste incineration. An overview of the volumes and forms of treatment is given in Table C 3.1.

Fly ash from waste incineration constitutes approx. 18 per cent of the total volume of primary and secondary hazardous waste. Some of these residues are currently sent abroad for landfilling.

Flue gas waste will be exported and landfilled until a permanent solution has been established.

C 3.2 Future initiatives

At present, there is no basis for foreseeing any need to expand capacity for treatment of hazardous waste.

Requirements for recycling of residues from waste incineration plants will be adjusted so that groundwater resources are protected.

In 2003, the Danish Environmental Protection Agency will prepare an action plan for the future management of flue gas cleaning products in cooperation with waste incineration plants. The action plan will contain deadlines for when each problem with flue gas cleaning products has to be solved.

Once environmentally responsible reprocessing methods have been established, specific rules will be laid down for the management of flue gas cleaning products from waste incineration plants.

C 3.3 Regulation

Hazardous waste is regulated by the Statutory Order on Waste ^[10]. Municipal council collection schemes for hazardous waste must be used unless the waste producer can demonstrate that the hazardous waste will be managed in an environmentally responsible manner.

C 3.4 Environmental assessment

Improved collection and classification of hazardous waste will ensure environmentally appropriate management of waste.

C 3.5 Implications for the national authorities

None.

C 3.6 Implications for municipal authorities

None.

Footnotes

[1] Figures for volumes of waste in 2008 are forecasts based on Briefing no. 11, 2002 from the Danish Environmental Protection Agency: Waste Incineration 2004 and 2008, Volumes and Capacities.<0}

[2] The Ministry of the Environment and Energy's Statutory Order no. 619 of 27 June 2000.

[3] Under Statutory Order no. 849 of 30 September 1994 on assessment of the effects of certain public and private projects on the environment.

[4] The Electricity Supply Act, Consolidated Act no. 767 of 28 August 2001 on electricity supply legislation, as most recently amended by Act no. 1091 of 17 December 2002.

[5] The Heating Supply Act, Consolidated Act no. 772 of 24 July 2000 on heating supply legislation, as most recently amended by Act no. 316 of 22 May 2002.

[6] Implements EU Directive 74/464/EEC on pollution caused by certain dangerous substances discharged into the aquatic environment of the Community.

[7] Statutory Order no. 39 of 20 January 2000 on the use of ash from the gasification and incineration of biomass and biomass waste for agricultural purposes.

[8] The Ministry of the Environment and Energy's Statutory Order no. 619 of 27 June 2000 on waste.

[9] The Ministry of the Environment and Energy's Statutory Order no. 1062 of 4 December 2000

[10] Statutory Order no. 619 of 29 June 2000 on waste.

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Version 1.0 June 2004, © Danish Environmental Protection Agency