Waste 21

1. Waste 21 - Presentation and Objectives

Waste 21 is the Government's national waste management plan covering the years 1998 - 2004. The waste management plan is a follow-up of the Government's Report on Waste¹, presented in early 1998. The plan was debated in the Folketing on 28^th January 1999. This debate showed broad political agreement on the overall targets of Waste 21.

Waste 21 sets the agenda for future waste management in Denmark. The plan gives a description of present waste management, initiatives already implemented, as well as new initiatives that ensure better and more efficient waste management than we have today.

The initiatives of Waste 21 are also a signal to local councils of measures to be taken in the coming years which will be considered in the next generation of municipal waste management plans.

Waste 21 meets the requirements of EU legislation with respect to waste management plans, which must be drawn up by all Member States.

Waste is a resource, and the challenge in future is to limit the loss of this resource as much as possible in an environmentally efficient and economic way. However, this can only be achieved if citizens and enterprises participate actively in waste management solutions.

We know that citizens have a keen interest in such active participation, whether at home or at work. Only by building on citizens' environmental commitment can we achieve good results in the form of efficient collection and recycling schemes.

Also in future, local councils will be responsible for the development of waste management solutions, and they must be flexible and open to local, regional and national initiatives that can contribute to improving waste disposal. Local councils must co-operate with citizens, enterprises and the State within waste prevention and development of waste management solutions. It is crucial that local councils base waste management solutions on the waste hierarchy, meaning that recycling has higher priority than incineration and landfilling.

However, when choices are made on forms of treatment, it is important to consider both the environment, energy and resources, as well as economic aspects. This means that the waste hierarchy will not necessarily be followed in all cases.

Municipal initiatives that are not mentioned in this plan will be covered by municipal regulations.

Future efforts in waste management present significant challenges to be taken into consideration in waste management solutions. The challenges are:

» to reduce environmental impact from environmental contaminants in waste,

» to ensure better resource recovery.
First, materials in waste must be recovered, then the energy content.

	to improve quality in waste treatment, i.e.
	stabilise total waste amounts

Waste 21

Waste 21 presents a broad range of initiatives for future waste management. Together, these initiatives will ensure that treatment of waste in Denmark will move up the waste treatment hierarchy.

Waste 21 identifies the following main areas of effort:

Separation of waste in more fractions

Source separation

It is important to utilise resources in waste. To that end, waste must be separated into more fractions and treated separately, insofar that it is economically and environmentally beneficial. This will increase recycling and solve the problems caused by environmental contaminants.

Waste 21 presents a number of new initiatives based on citizens' and enterprises' commitment to the environment-friendly treatment of waste².

Waste fractions which used to be incinerated or landfilled must now be recycled thanks to new methods prioritising resource recovery - also of environmental contaminants. This will lead to reduced impacts on the environment.

Another advantage of increased recycling is that the fractions in question will in future no longer take up capacity at incineration plants or landfills.

The following eight fractions will be separated at the source:

Separate collection of the organic fraction of domestic waste will be extended, once experience with biological treatment is sufficient. Costs of collection and biogasification depend on types of housing and systems chosen, but will not necessarily exceed present costs of disposal.

Organic waste

Paper and cardboard Collection from private households and industry and commerce will be extended and made more efficient, and after year 2000, kerbside collection of paper will be established. Local councils will ensure that regulations on separation of paper and cardboard in enterprises are complied with. Kerbside collection will entail additional costs per year of DKK 60-100 per household, depending on types of housing and system chosen.

Cardboard packaging Recycling of packaging will be increased. Citizens will be able to separate cardboard for recycling.

PVC Today, PVC causes problems in traditional waste management. New treatment methods are being developed and are expected to be ready within a few years. Therefore, PVC will be separated. PVC fractions that cannot be recycled will be assigned to landfilling. It is recommended that local councils assign PVC waste to landfilling in special cells so that it may be possible to transfer this waste to alternative treatment later. When new methods have been developed, new requirements will be made for special management.

Impregnated wood Impregnated wood also causes problems in traditional waste management. For this fraction also, new treatment methods are being developed. In future, impregnated wood will be separated as waste not suitable for incineration and assigned to landfilling. When better treatment methods have been developed, impregnated wood will be collected separately.

	Waste electrical and electronic equipment This fraction also causes problems in traditional waste management. Therefore, products will be collected separately, and requirements for their treatment will be made. It is estimated that annual waste collection fees will increase by around DKK 40 per household. For industry and commerce, costs of management of waste electronic equipment will be DKK 5,000 compared to today's costs of DKK 800/tonne.
	End-of-life vehicles Today, end-of-life vehicles present a considerable environmental problem. In future, collection and reprocessing of vehicles will be ensured. Therefore, end-of-life vehicles will be collected efficiently and reprocessed at enterprises documenting that they are able to reprocess vehicles in an environmentally acceptable way. Future costs of scrapping are expected to amount to DKK 600-700/vehicle against DKK 300-400 today.
	Batteries When new treatment methods have been developed, all batteries will be collected separately. In a long term perspective, this will increase collection rates for all types of batteries - also for the types collected separately today.

Larger focus on products

Producer responsibility

Producer responsibility - entailing responsibility of producers for the recyclability of products already at the design stage - is a logical concept. Producer responsibility must be introduced internationally if it is to have a high impact on future waste.

The contents of problematic substances in waste must be reduced. Here, the Government's focus on chemicals plays a vital role. The list of undesired substances is a useful tool in identifying substances causing problems for waste management. The list can also be used in connection with the design of new products - and thereby improve waste quality in future.

Focus on waste from enterprises

Enterprises must be more attentive to their waste generation. It is worthwhile knowing the composition of waste, and improving waste management saves money and resources. Enterprises in their environmental planning must take waste into consideration with respect to general treatment strategy, and they must be prepared - together with authorities - to propose new waste solutions.

In connection with the extension of the ISAG - the Danish Information System for Waste and Recycling - it is sought to collect more precise information on enterprises' waste, to be used for waste planning and supervision.

For example, information on waste generation, waste composition and possibilities of separating environmental contaminants in waste will in future be important elements in green accounts, environmental permits and environmental management.

The desire of management and staff to make an effort must be exploited, and commitment to waste management must be increased. People closest to the source of waste have good opportunities to improve waste management.

Recycling of waste must be increased, for example by extended use of waste consultants and establishment of waste exchanges.

Improved quality of waste treatment

Treatment methods must be adapted to future requirements for the utilisation of resources in waste - and products must be manufactured that allow for good treatment of subsequent waste.

Both in Denmark and abroad, treatment methods are being developed that ensure utilisation (recovery) of resources in selected waste fractions.

These methods are not fully operational, and experience shows that it takes time for new methods to be fully implemented. New technology will be developed gradually.

In the selection of new methods it is important to consider when and whether to utilise the materials or the energy content of waste: recovery of materials through recycling can be done repeatedly, whereas recovery of energy in waste by incineration can only be done once.

Profitable treatment of waste requires, however, that plants have sufficient supply and financial resources. The need for sufficient supply will, for example, require that small waste fractions are collected from larger areas. Co-operation among regions - also across borders - or among sectors with many small enterprises may be the key to creating the necessary basis for recycling given fractions. It may be necessary to establish few plants for the treatment of certain waste streams. The siting of such plants must be adapted to the supply base and logistics.

Increased involvement of importers, suppliers and traders, as well as development of collection equipment, will enhance the collection of waste.

With new treatment methods, a new certification scheme for treatment plants has been introduced, according to which enterprises must document that they are able to reprocess a given waste fraction in an environmentally correct manner.

Waste prevention

In 1997, 12.9 million tonnes waste were generated in Denmark. The total amount of waste is similar to that of 1996, but covers different developments in different sectors. There was a decrease in waste amounts from coal-fired power plants, an increase in construction and demolition waste amounts, and unchanged waste generation in households. The increase within other sectors (industry, institutions, trade and offices as well as wastewater treatment plants) was moderate - between 1 and 4 per cent per year.

Economic growth has a large impact on waste generation. Other factors also influence waste arisings. In some cases, initiatives for waste prevention will be adapted to the sector, in other cases to the waste fraction. There is therefore a need to study each sector and fraction in order to determine factors influencing waste generation.

We know that different strategies to prevent waste have to be implemented depending on the origin of waste: waste may be generated in production (process waste), it may originate from discarded products, or waste may be residues, for example from coal-fired power plants.

Environmental management and clean technologies can limit the amounts of waste generated in enterprises. The integrated product policy will lead to increased lifetime of products, improved recyclability of discarded products, and it will ensure that product design also considers the waste perspective of products. For residues, completely different factors influence waste arisings. For example, the amount of residues generated in coal-fired power plants is directly linked to energy policy.

The implementation of integrated product policy will have an impact on waste management, but some years will pass before products of the future become waste. For a long period, waste will be made up of "old" products. In addition, there are considerable imports of goods, and such goods are expected to be manufactured according to the integrated product policy later abroad than in Denmark.

Waste composition is a result of different activities in our society; daily activities in households, at work and in industrial production. Activities change as a consequence of many different impacts.

Responsibility for solving the problem of increasing waste amounts is shared by all citizens. In 1999, a conference will be organised, allowing parties involved to meet and commit themselves to co-operation on waste prevention.

Interplay between the Danish waste model and the EU

The Danish waste model is the result of an interplay between EU regulation and national regulation.

EU regulation lays down overall frameworks and principles for waste management. The organisation of waste structures and the incorporation of EU regulation in Danish legislation is a national task.

Denmark, with a number of other EU countries, has come far in waste management. Together with these other countries we have succeeded in incorporating key elements of the Danish waste model in EU regulation, for example the waste hierarchy, source separation, licencing requirements for treatment plants, and the establishment of data collection. On one point, Denmark has chosen another path than other European countries: we incinerate a very large part of our waste and landfill very little.

Environmental design of industrial products will in the long term have a significant impact on waste composition. Danish product design must be supplemented by an international effort due to the large amounts of imported goods. The integrated product policy therefore also has an international aspect.

We will continue to develop the Danish waste model. There are still many environmental problems related to our way of managing waste. In co-operation with other countries we will find new waste solutions minimising the impacts of waste management as they are today, and we will pass on experience gained to the EU and other Member States just as we will also be inspired by solutions in other countries. By co-operating for better waste management within the EU we can achieve considerable results.

Transboundary movements of waste

Today, transboundary movements of waste are controlled. The possibilities of controlling waste depend on the destination: recovery or disposal. Special requirements for waste treatment, for example, may be used to control movements. The purpose of this control is to ensure that waste receives environmentally sound treatment.

Waste destined for recovery

In cases where we have a superior recovery method in Denmark, we must make use of it. We can control movements of waste for recovery through specific treatment requirements in national legislation or municipal regulations. Today, we have laid down special treatment requirements for refrigeration equipment and electronic waste. It is planned to make treatment requirements for vehicles, and requirements for batteries, PVC, shredder waste and waste suitable for incineration are being considered (see Appendix A). Transboundary movements of waste for recovery will only be permitted on the basis of a specific evaluation of compliance with treatment requirements. If no such requirements are laid down, transboundary movements can only be prevented through environmental considerations, or with a view to protecting public safety or health.

Waste destined for disposal

If suitable plants are available for the disposal of waste in Denmark, transboundary movements of waste destined for disposal will not be permitted. The background for this ban is the proximity principle, the priority for recovery and self-sufficiency at national and Community levels. The ban will be incorporated in legislation.

Imports of waste for disposal in Denmark are not permitted. One exception is waste which is generated in such a small quantity in another Member State that the provision of new specialised disposal plants in that State would be uneconomic. This ban will be incorporated in legislation. The Commission will be notified of these measures in accordance with Council Regulation.³

1.2 Objectives

	quality in waste treatment
	reduced environmental impact
	utilisation of resources in waste

Waste 21 envisages a change in focus.

Focus used to be on quantities - and it will now be supplemented by qualitative elements such as utilisation of resources in waste, quality in waste treatment, and mitigation of problems caused by environmental contaminants.

With Waste 21, Danish waste management will be improved, entailing reduced loss of resources and better quality in waste treatment. The plan reflects the principles of ecological space and allows for larger participation of citizens and enterprises in waste solutions.

	64 % recycling
	24 % incineration
	12 % landfilling

New national objectives for waste management means increased recycling and reduced landfilling. Objectives⁴ have been drawn up on the basis of an evaluation of impacts of initiatives and an assessment of waste arisings year 2004.

Need for landfilling decreases

The objective is that the total need for landfilling in year 2004 will be reduced by some 500,000 tonnes against the quantity landfilled in 1997. This will be achieved through increased recycling and incineration. This is a decrease of 25 per cent against 1997. Waste from industry and residues from coal-fired power plants in particular contribute to this decrease.

The ban on landfilling of waste suitable for incineration means that resources in waste are better utilised through incineration - but at the same time this has led to new challenges in waste management. Now, the objective is to shift a larger part of waste suitable for incineration to recycling - and at the same time to shift non-combustible waste directly from landfilling to recycling.

Capacity

Up to year 2004, landfill capacity at national level is sufficient, but there are large differences among the regions.

Increased recycling

Recycling can be improved compared to today. The initiatives in Waste 21 will lead to increased recycling of 270,000 tonnes. This is an increase of 1 per cent against 1997. The increase will be distributed over all sectors - except for municipal wastewater treatment plants and the building and construction sector.

Figures may give the impression that recycling targets have been met, but construction and demolition waste counts much in the overall calculation. Many new initiatives are not directed at heavy waste fractions, but rather at light, important fractions such as plastic and paper and fractions containing environmental contaminants.

As a consequence of waste prevention initiatives in the Government's plan of action for energy, Energy 21, amounts of residues from coal-fired power plants, which are recycled extensively, will decrease considerably.

More incineration

Total amounts of waste going to incineration in 2004 will increase compared to 1997⁵. Initiatives in Waste 21 for increased recycling will shift waste from incineration, but other factors will have the opposite impact. Firstly, the ban on landfilling of waste suitable for incineration is expected to shift large amounts of waste from landfilling to incineration. Secondly, an increase in waste arisings up to year 2004 will mean more waste to be incinerated.

Capacity

New challenges are ahead due to increased capacity needs and enhanced environmental requirements⁶. These challenges will be solved in close co-operation between local, regional and national authorities. The aim is to adapt capacity to needs and site capacity in a way that allows for best possible energy utilisation and largest possible CO₂ mitigation based on the principle of regional self-sufficiency. Co-ordination of incineration capacity will be enhanced or rules will be introduced ensuring overall planning nationally and regionally and that environmental and economic considerations are respected.

Better quality in waste treatment

New treatment methods are being developed for a number of waste fractions, but there is still a long way to go before all methods have reached full-scale operation. Therefore, the effect of new treatment methods cannot be measured today; developments have to be seen over time. When processes are operational, separate collection will be introduced for environmentally harmful and recyclable fractions.

A review of the effects of initiatives for electronics, end-of-life vehicles, batteries and impregnated wood based on today's data shows the following:

40% of copper is recycled

For electronics it is expected that around 25,000 tonnes of waste electrical and electronic equipment will be shifted from landfilling and incineration to recycling. The copper content of this waste corresponds to 40 per cent of the amounts incinerated or landfilled today.

25 tonnes of lead to be recycled

Reprocessing of end-of-life vehicles will ensure that 25 tonnes of lead are separated for recycling.

6 tonnes of cadmium

Collection and treatment of all NiCd batteries will remove 6 tonnes of cadmium from waste streams.

75 tonnes of chromium

It is assessed that separate treatment of impregnated wood in year 2004 will entail a reduction of around 25 tonnes of arsenic and 75 tonnes of chromium in conventional waste treatment.

Waste prevention

Waste prevention is one of the key elements of Waste 21. Already now, waste prevention may be introduced for fractions where factors significant to waste generation are known. Today we know that new energy generation will lead to a considerable reduction of residues from coal-fired power plants within the next 30 years.

Consumption patterns are decisive to developments in waste arisings from households. It is therefore planned to launch information campaigns focusing on the connection between material consumption and waste arisings.

Results within sectors

Prerequisites for meeting targets for year 2004 are that national and local authorities issue the necessary rules and regulations, and that citizens and enterprises participate in waste solutions.

Development and information activities stated in Waste 21 require substantial subsidies from the Environmental Council for Cleaner Products. Studies will show which additional financing schemes may be established to strengthen certain areas in order to ensure a systematic improvement in waste management all over Denmark.

Initiatives for various sectors can be summarised as follows:

70% recycling

A number of environmentally harmful fractions may no longer be assigned to disposal at conventional waste incineration plants. These fractions are, for example, waste electronic equipment, impregnated wood, and PVC. Stabilised flue gas cleaning waste will be landfilled at three sites receiving waste from the whole country. Recycling of residues from waste incineration plants is to reach at least 70 per cent in year 2004 (77 per cent in 1997).

90% recycling

Recycling of construction and demolition waste is to be kept at the present high level, and environmental contaminants from the building sector are to be collected and treated separately. Such materials are PVC, waste electrical and electronic equipment, as well as impregnated wood. In year 2004, recycling is to be at 90 per cent (92 per cent in 1997).

Recycling of household waste will increase up to year 2004. Recycling of domestic waste and bulky waste will increase, and garden waste will be kept at the present high recycling rate.

30 % recycling

Increased recycling of domestic waste will be ensured by the introduction of kerbside collection schemes for paper, and increased information on glass collection. Recycling of organic domestic waste will be increased as biogas technology is developed and capacity installed. In a longer term perspective, separate collection schemes will be introduced all over the country. The recycling objective for domestic waste is 30 per cent in year 2004. The long term objective of 40 to 50 per cent is to be maintained (15 per cent in 1997).

25 % recycling

Recycling of bulky waste will be increased by further source separation of recyclable fractions such as cardboard. Requirements for the establishment of recycling possibilities for source-separated waste at recycling centres will be considered. Recycling is to reach 25 per cent in year 2004 (17 per cent in 1997).

65 % recycling

Waste from industry will be shifted from landfilling to recycling, and environmental contaminants in waste are to be managed through better treatment methods. Fractions in focus are, for example, foundry waste, shredder waste, and waste electrical and electronic equipment. Recycling will be increased, for example, through the establishment of waste exchanges. Recycling in year 2004 is to reach 65 per cent (58 per cent in 1997).

50 % recycling

Recycling from institutions, trade and offices will be increased by enhanced collection of recyclable materials. This can be achieved through improved information, guidance from special waste consultants, and enhanced supervision by local authorities. The effort is especially directed towards fractions such as batteries, vehicles, tyres, refrigeration equipment, PVC, waste electrical and electronic equipment, cardboard and paper, as well as waste oil. Recycling is to reach 50 per cent in year 2004 (38 per cent in 1997).

50% recycling

Both fertiliser and energy resources in municipal sewage sludge are to be utilised, but due to stricter requirements for the contents of certain organic chemical substances in sludge, it is expected that the present high level of application of sludge to farmland cannot be maintained. The objective is therefore to have 50 per cent recycling in year 2004 (70 per cent in 1997).

90% recycling of bottom ash and fly ash

Amounts of residues from coal-fired power plants are expected to drop as a consequence of Energy 21. Recycling of residues can therefore be increased to 90 per cent in year 2004 (73 per cent in 1997). Furthermore, it will be ensured that increasing amounts of bioash are recycled in environmentally appropriate ways.

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