ZDE08 Dept.of.En waste doc · 2018. 7. 13. · • promote the use of internet "waste exchanges" and "swap shops"; • develop guidance on refurbishment and re-use of IT equipment,

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AN ROINN COMHSHAOIL AGUS RIALTAIS ÁITIÚIL

DEPARTMENT OF THE ENVIRONMENTAND LOCAL GOVERNMENT

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BAILE ÁTHA CLIATHARNA FHOILSIÚ AF OIFIG AN tSOLÁTHAIR

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DUBLINPUBLISHED BY THE STATIONERY OFFICE

To be purchased directly from the

GOVERNMENT PUBLICATIONS SALE OFFICE,SUN ALLIANCE HOUSE, MOLESWORTH STREET,DUBLIN 2,

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PN no: 11286 ISBN No: 0755712137€12.00

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Foreword ................................................................................................................ ii

Executive Summary ..................................................................................... iv

1. A Framework for Action .................................................................. 2

2. Preventing and Minimising Waste .......................................... 9

3. Recycling Waste – the Current Situation ............................. 15

4. Promoting Re-use ................................................................................... 24

5. Promoting Recycling of Non-Organic Waste .................... 29

6. Producer Responsibility ................................................................... 39

7. Promoting Biological Treatment of Organic Waste .... 46

8. Public Service Waste Management Programme ........... 50

9. Looking Forward ..................................................................................... 51

Appendices

I. Principal EU Instruments relating ........................................... 52

to Waste Management

II. Basic Methodologies of Recycling ............................................ 55

III. Glossary of Terms .................................................................................. 58

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Repeating ourselves may not begood manners, but sometimes it’simportant. Prevention, reduction,reuse and recycling are a song I’vebeen singing for a long time. I believe passionately they mustbe right at the top of Ireland’swaste management agenda. We’vegot to ensure that everybody’sfirst waste management choice isreducing the amount of wastegenerated. That means action. Itmeans incentives and structuresto make sure the nation deliverson its good intentions.

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Having the best of intentions doesn’t prevent thedebate on waste management boiling down, againand again, to landfill versus incineration. That’s notgood environmental thinking, because it lets us offtoo many hooks. It’s easy to ignore recycling, wastereduction and prevention and yet feel we’re truly‘green’ because we object to more landfills or toincinerators. But it’s phoney environmentalism.

Genuine environmentalism starts with reduction, as did the 1998 policy statement Changing OurWays. If we really care about the environment, andparticularly our own local environment, this has tobe our focus. We need to look positively towardseliminating as much waste as possible, rather thanbeing so eager to fall on the final sword of‘disposal is necessary’. We’re getting there. But notfast enough.

Sometimes it’s a question of one step forward, two steps back as markets for recycling maycontract or processors may find it difficult to makea profit from their operation. Another reason wehaven’t moved as quickly as I’d like was the delayin the adoption by some local authorities of localand regional waste management plans.

Nevertheless, we are looking at real progress:–

•Many local authorities have segregated waste collection.

In Dublin, it serves 150,000 households;

•We now have over 1,300 bring banks in place – compared to 400 in 1994;

•We now have civic amenity centres in most areas of the country;

•We have introduced the plastic bag levy;

•We reached our national target of recycling 25% of packaging wastein 2001.

The challenge is to make further, rapid, strides.Together we can do it.

Noel Dempsey TD,Minister for the Environment and LocalGovernment

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executive summary

Introduction

Waste Prevention andMinimisation

Re-use

Recycling

Producer Responsibility

Biological Treatment of Organic Waste

Public Service WasteManagement Programme

Far too much waste is producedannually in Ireland. Continuinggrowth in waste production isunsustainable. We must break thelink between economicdevelopment and increasingenvironmental pressure. ThisPolicy Statement addresses thefactors and practicalconsiderations that are relevant tothe achievement of Governmentpolicy objectives for theprevention of waste and for the re-use and recycling of the wastewhich is produced.

1. Introduction

The vast bulk of waste arising in Ireland islandfilled. However, landfill should be a last resortafter all other options have been exhausted. Onlymaterial that cannot be prevented, re-used,recycled, or otherwise treated should be landfilled.

Accordingly, this Policy Statement:

• highlights the necessary disciplines that must beimposed within waste management systems tosecure real progress on waste prevention, re-useand recovery;

• outlines a range of measures that will beundertaken in the interests of minimising wastegeneration and ensuring a sustained expansionin re-use and recycling performance; and

• identifies issues and possible actions whichrequire further systematic consideration.

Following the enactment of the Waste Management(Amendment) Act 2001, all waste management planshave now been adopted. Irish waste management isnow moving from plan to implementation. Thepublication of this Policy Statement complements theimplementation of these plans. It also looks forwardto the future and establishes systems which will intime further transform and radicalise the way wedeal with waste.

This Policy Statement evolves from and is groundedin the 1998 policy statement Changing Our Wayswhich provided a national policy framework forthe adoption and implementation of strategicwaste management planning. Changing Our Waysgenerated much good will. This must now betranslated into action, and action is required frompublic authorities, business and the general public.

Many of the structural initiatives identified in theStatement will bring new strengths to the

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modernisation of waste management practice andwill deliver research and policy initiatives in theyears ahead. Now that waste management plansare in the process of being implemented, and witha range of additional initiatives being broughtforward by this Policy Statement, a clear needexists for consolidating and co-ordinatingarrangements across all aspects of wastemanagement policy and performance. Therefore, aNational Waste Management Board will beestablished in 2002 to co-ordinate, monitor, reviewand advise on all aspects of waste managementpolicy at all levels of the waste hierarchy.

In particular the National Waste Management Board will -

• co-ordinate and monitor the implementation ofnational and regional waste management policyand planning;

• maintain a broad overview of existing policy asset out in this Statement and in Changing OurWays, and provide ongoing advice in that regardto Government, public authorities and theprivate sector;

• evaluate the contribution of local and regionalwaste management plans to the achievement ofnational waste management targets;

• act as a consultative forum for the considerationof EU legislative initiatives;

• make recommendations regarding the needfor/contribute to research and developmentinitiatives in relation to specific waste streams;

• provide advice and recommendations regardingthe preparation of the National Strategy onBiodegradable Waste;

• monitor and evaluate international best practicewith a view to appropriate application in Ireland,including where necessary calling on the servicesof independent expert groups to evaluatespecific issues;

• support and facilitate the Recycling ConsultativeForum and Market Development Group;

• undertake public awareness and educationcampaigns in relation to waste management;

• carry out regular reviews of this Policy Statement.

This Policy Statement points theway forward and provides for arange of actions to be taken whichwill affect the way in which wedeal with goods and materials atall stages from production todisposal.

2. Waste Prevention andMinimisation

Prevention means reducing the quantity andharmfulness to the environment of materials andthe substances contained therein. Wasteprevention initiatives can therefore be successfullyapplied at any time in the life-cycle of a materialor substance, including in the production process,the marketing, distribution, or utilisation stages,up to eventual discard at the end-of-life stage.

Prevention is the most desirable method of wastemanagement since the absence of waste totallyeliminates the need for handling, transportationand treatment of discarded materials. Preventionof waste provides the highest level ofenvironmental protection, optimises the use ofavailable resources and removes a potential sourceof pollution.

Minimisation means any technique, process oractivity that either avoids, reduces or eliminateswaste at its source, or results in re-use or recycling.Waste minimisation requires all stakeholders in themanagement chain to adopt a proactive role inreducing the quantity and harmfulness of wasteultimately sent for disposal and to choose productswhich create the least harm to the environmentduring production, in operation as well as in waste treatment.

Very significant benefits derive from wasteprevention and minimisation, including:

• reducing the extent of emissions, discharges andpollution associated with the production,management and disposal of waste,

• reducing the overall costs of waste management,and

• conserving energy and natural resources.

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The Government will -

• establish a well-resourced National WastePrevention Programme (NWPP) to deliversubstantial results on waste prevention andminimisation;

• establish a "Core Prevention Team" (CPT) withinthe EPA to drive this initiative;

• establish a Prevention Programme SteeringGroup, that will co-ordinate/liaise with publicauthorities at all levels, monitor the overallthrust of the National Waste PreventionProgramme, and provide strategic directionto the Core Prevention Team;

• provide seed funding of €1.27 million in 2002,from the Environment Fund, to facilitate theimmediate establishment of the Core PreventionTeam and provide ongoing support for theTeam;

• commit funding from the Environment Fund tosupport specific prevention initiatives;

• introduce a system of mandatory waste auditsand waste reduction programmes for businesseswhich fall below the threshold for IntegratedPollution Prevention and Control licensing.

3. Re-use

Re-use means the use of a product on more thanone occasion, either for the same purpose or for adifferent purpose, without the need forreprocessing. Re-use avoids discarding a materialto a waste stream when the initial use of theproduct has concluded. It is more preferable thata product be re-used in the same state, since it willnot then require additional processing involving afurther input of energy and raw materials.

Re-use can be increased through the repair andrenovation of products, their donation tocharitable causes or by direct resale of the usedmaterials.


• promote voluntary action by relevant sectors ofindustry to implement re-use systems or wherenecessary, apply appropriate policy instrumentsto ensure the implementation of re-use systemsin situations where this practice represents the

Best Practical Environmental Option;

• implement the 15 cent levy on plastic shoppingbags and encourage their substitution by re-usable bags;

• support EU initiatives to increase re-use,including where appropriate mandatory re-usetargets;

• encourage the re-use of non-packaging products;

• promote the use of internet "waste exchanges"and "swap shops";

• develop guidance on refurbishment and re-useof IT equipment, including computers.

4. Recycling

Recycling involves the treatment of a discardedwaste material to make it suitable for subsequentre-use. Recycling involves a certain amount ofreprocessing.


• establish a Recycling Consultative Forum to besupported by the National Waste ManagementBoard, and to act as a consultative and advisorybody on all aspects of recycling;

• provide €127 million in EU/Exchequer supportfor waste recovery infrastructure, includingrecycling infrastructure, in the period 2002 –2006;

• introduce a landfill levy in 2002 and beginimplementing national bans on landfillingspecific materials;

• utilise revenues from the new plastic bag andlandfill levies, through the Environment Fund(provided for under the Waste Management(Amendment) Act 2001) to assist waste recyclingactivities;

• in addition, provide €0.635 million seed fundingfor establishment in 2002 of a MarketDevelopment Programme which will identify andpromote markets for recyclable material;

• under the direction of the North/South MinisterialCouncil co-operate with the Department of theEnvironment in Northern Ireland on thedevelopment of an all-island approach todeveloping markets for recyclable material;

• exempt from planning permission, subject to

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conditions, the provision of bring banks;

• through Enterprise Ireland provide support fordevelopment of indigenous reprocessingindustry.

5. Producer Responsibility

The Producer Responsibility concept recognisesthat the producers of goods and materials need totake responsibility for the environmental impact ofplacing goods and services on the market.

The Government will, in co-operation with business -

• put in place measures to support Ireland’sattainment of 50% recovery of packaging wasteby 2005, (including dedicated arrangements forspecific materials such as PET and Tetra Pak);

• carry out a comprehensive review of the WasteManagement (Packaging) Regulations, 1997;

• put in place measures to ensure that end-of-lifevehicles and waste electrical and electronicequipment are recovered and recycled inaccordance with, and within the timescales setout in, the relevant EU Directives;

• put in place an effective system to ensure thatthe recycling targets for Construction andDemolition Waste, of 50% by 2003 and 85% by2013, are met by the construction industry;

• establish producer responsibility initiatives in2002 to recycle newsprint, tyres and batteries;

• where necessary, require problematic sectors tointroduce waste recovery schemes using powersunder the Waste Management Acts;

• ensure an effective enforcement regime forRegulations made under the Waste ManagementActs in support of producer responsibilityinitiatives;

• establish a Producer Responsibility Unit within the EPA to carry out research, monitorperformance under specific producerresponsibility initiatives, and secure betterenforcement and promote good practice.

6. Biological Treatment of OrganicWaste


• draw up a National Strategy on BiodegradableWaste in the Municipal Waste Stream in 2002;

• support the provision by local authorities ofinfrastructure for the biological treatment oforganic waste;

• introduce product standards for compost derivedfrom municipal waste;

• encourage the development of markets for thoseproducts;

• support the development of widespread homecomposting.

7. Public Service WasteManagement Programme


• develop a public service waste managementprogramme;

• promote, in particular, the use of recycledmaterial in public procurement policies,including ensuring that within 2 years, all publicauthorities use recycled paper for routine use;

• strengthen the green networks which existbetween Government Departments and betweenlocal authority Environmental Awareness officers.

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Waste and SustainableDevelopment

Objectives of this PolicyStatement

National WasteManagement Board

National RecyclingStrategy - Recycling for Ireland

Changing Our Ways

Waste Management Planning

The EU Context

Implementation: SupportingConsiderations

Economic Impacts of PolicyStatement

Timeframe and Review

Far too much waste is producedin Ireland. Continuing growth inwaste production is unsustainable.

1.1 Waste and SustainableDevelopment

Breaking the link between economic developmentand increasing environmental pressure is a criticalchallenge for modern society. Increasing quantitiesof waste represent a highly visible and intensifyingexample of environmental pressure. The issuesassociated with the generation and managementof waste are linked to economic activity, industrialdevelopment, lifestyle and consumption patterns.Societal values emphasise consumption andconvenience, with less consideration of theenvironmental consequences. Social factors andtechnological development reinforce this trend.

Environmental Protection Agency (EPA)publications show a continuing steady increase inwaste production in Ireland, substantially in linewith economic growth. In particular, reportedmunicipal solid waste (MSW) arisings have doubledover the past fourteen years, and the bulk of thiswaste is being consigned to landfill. Whilesuccesses have been recorded in some areas, suchas recovery of packaging waste and farm plastics,considerable progress remains to be achieved inthe areas of waste prevention, minimisation andrecycling.

Waste material can either be downgraded bydisposal or upgraded through utilisation as aresource. Many discarded materials present a clearopportunity for further beneficial uses, and theoverall achievement of more efficientmanagement of resources.

A high priority must therefore be placed on theintegration of waste management issues into theproduction/consumption cycle, so that wastearisings are stabilised and current trends in wasteproduction reversed. An adequate waste recoveryinfrastructure, staffed by suitably competent andtrained personnel, is also essential to ensure thatthe management of unavoidable waste isconducted in a responsible and environmentallysensitive manner.

Irish waste trends mirror those throughout Europe.Reported total waste generation within EU andEuropean Free Trade Association countriesincreased by nearly 10% between 1990 and 1995,in comparison with real economic growth of 6.5%over the same period1. Generation ofpaper/cardboard, glass and plastic waste isexpected to increase by between 40% to 60% overthe period 1990 – 2010. The quantities of wasteproduced within Europe are now becoming so

large that waste transport represents a significantproportion of total transport activity.

Ireland needs to –• place greater emphasis on waste prevention and

minimisation, to restrain, stabilise and reversethe growth in waste generation;

• change both its production and consumptionpatterns, and greatly improve its management ofwaste that is generated;

• recognise that much unavoidable waste is aresource, which, if re-used or properly exploitedfor its materials and energy content, can reducethe use of natural resources and minimise theenvironmental impacts of waste disposal.

More sustainable waste management options mustbe carefully regulated and controlled, to achievehigh standards of environmental protection.

1.2 Objectives of this Policy Statement

This Policy Statement addresses the factors andpractical considerations that are relevant to theachievement of Government policy objectives andfor the prevention and recovery of waste. Overallwaste management policy targets are set out in AnAction Programme for the Millennium and relatedpolicy documents, including Waste Management:Changing Our Ways. It is firmly grounded in theinternationally recognised hierarchy of wastemanagement options, which prioritises,respectively -

• prevention and minimisation;

• re-use;

• recycling and biological treatment;

• energy recovery; and

• environmentally sound disposal, eitherby thermal treatment (without energy recovery)or by landfill.

Under this hierarchy, landfilling should be a last resort after all the higher options have beenexhausted, i.e. only material that cannot beprevented, re-used, recycled, or otherwise treatedshould be landfilled.

Accordingly, this Policy Statement: -

• highlights the necessary disciplines that must beimposed within waste management systems tosecure real progress on waste prevention, re-use,

31Environment in the EU at the turn of the Century (EEA, 2000)

and recovery;

• outlines a range of measures that will beundertaken in the interests of minimising wastegeneration and ensuring a sustained expansionin re-use and recycling performance; and

• identifies issues and possible actions whichrequire further systematic consideration.

The proposed measures will have a particularrelevance for municipal wastes (MSW). Municipalwaste is the most diverse waste stream and istherefore liable to give rise to more complex endproducts. The National Waste Database report for1998, published by the EPA, estimates that only9.0% of municipal waste is recycled, in sharpcontrast to the reported recovery rate of almost27% achieved for industrial wastes.

This Statement concentrates on the 3 highest stepson the waste hierarchy recognising, as do the localand regional waste management plans, thatemphasis must be given to the widest practicablerealisation of waste prevention, minimisation, re-use, materials recycling and biological treatment,before energy recovery through thermaltreatment, and final disposal in landfill.

1.3 National Waste Management BoardLocal authorities have a pivotal role in changingIrish waste practice, and the waste managementplans now adopted, and being implemented bythem, provide the strategic framework withinwhich better waste management practices can be delivered.

However, changing our waste management culturerequires determined and ambitious measuresinvolving producers and consumers, as well as localand other public authorities. More sustainablepractices need to be applied by public authorities,business and the public in relation to theprevention and management of waste.

A range of specific actions are set out in thisStatement which will support improved nationalperformance at the higher levels of the wastehierarchy referred to above. With regional andlocal waste management plans in place, a modernwaste management system for Ireland, in line withthe vision in Changing Our Ways, can now takeshape. The Policy Statement provides for theestablishment of appropriate dedicatedinstitutional arrangements to support new andinnovative action. Recognising the linkagesbetween all levels of the waste hierarchy, and inthe context of more sophisticated responses toprevention, re-use, recycling, treatment and finaldisposal, a mechanism to co-ordinate action in allthese areas will be essential. A National WasteManagement Board will be established in 2002to co-ordinate, monitor, review and advise on allaspects of waste management policy at all levelsof the waste hierarchy.

In particular the National Waste ManagementBoard will:

• Co-ordinate and monitor the implementation ofnational and regional waste management policyand planning;

• Maintain a broad overview of existing policy asset out in this Statement and in Changing OurWays, and provide ongoing advice in that regardto Government, public authorities and theprivate sector;

• Evaluate the contribution of local and regionalwaste management plans to the achievementof national waste management targets;

• Act as a consultative forum for the considerationof EU legislative initiatives;

• Make recommendations regarding the needfor/contribute to research and developmentinitiatives in relation to specific waste streams;

• Provide advice and recommendations regardingthe preparation of the National Strategy onBiodegradable Waste;

• Monitor and evaluate international best practice witha view to appropriate application in Ireland, includingwhere necessary calling on the services of independentexpert groups to evaluate specific issues;

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Waste Management Hierarchy

most favoured option

least favoured option

Prevention

Minimisation

Reuse

Recycling

Energy Recovery

Disposal

• Support and facilitate the Recycling ConsultativeForum and Market Development Group;

• Undertake public awareness and educationcampaigns in relation to waste management;

• Carry out regular reviews of this PolicyStatement.

1.4 National Recycling StrategyRecycling for IrelandThe 1994 Strategy Statement, Recycling for Ireland,sought to mobilise support for recycling across thewidest possible spectrum of Irish society over theperiod 1994 to 1999. It acknowledged the sharedresponsibility of waste producers and advocatedthe co-operation of Government, local authorities,consumers and voluntary agencies to secureprogress on recycling in Ireland.

The principal focus of the Strategy was thedomestic and commercial waste streams,with a particular emphasis on packaging waste.It looked to an improved and intensified recyclingperformance by local authorities, and wasdesigned to provide a stimulus for increasedefforts to that end. Overall, the Strategyanticipated –

• greater public awareness leading to morepositive behaviour;

• the provision of accurate, reliable informationon waste quantities and composition, and onrecycling techniques;

• a more competitive cost base for recyclingas landfill became more expensive; and,

• improved recycling systems and product marketdevelopment.

In the intervening 8 years since publicationof Recycling for Ireland:

• comprehensive waste management legislationhas been enacted;

• financial support has been provided to assistlocal authorities in the formulation of ambitiouswaste management plans;

• some €13.97m. in grant assistance was allocatedto support private and local authority investmentin recycling and hazardous waste managementinfrastructure;

• good progress has been made in extending anetwork of "bring" centres for recyclables, upfrom around 400 in 1994 to an estimated 1,300in 2001;

• Repak Ltd. was established by industry, asIreland’s first producer responsibility initiative,for the recycling of packaging waste. By 2001Repak reported achieving the target of recycling25% of packaging waste as set down in the EUPackaging Directive;

• An increasing number of segregated domesticcollection schemes and civic amenity sites arebeing provided by local authorities;

• Comprehensive National Waste Databases havebeen published by the EPA for 1995 and 1998.

However, in some respects, the broad thrust ofpolicy contained in Recycling for Ireland has beenovertaken by events. The increasing cost of landfillservices has only recently begun to provide astimulus towards the routine development ofprevention, re-use and recycling practices.Recycling for Ireland may also have under-estimated the extent of preparation and effortnecessary to implement successful recycling systemsthat are capable of yielding substantial levels ofperformance. Notably, while the volume of wastebeing recycled increased substantially, a verylimited increase in overall recycling rates wasachieved over the period – recycling figures ofmunicipal waste rose from an estimated 7.4% in1994 to 9.0% in 1998. A successful approach towaste minimisation and recovery must involve awider range of initiatives and support measuresthan was heretofore envisaged. This includes,where appropriate, the use of disincentives aswell as incentives.

1.5 Changing Our Ways

The Policy Statement Changing Our Ways waspublished by the Minister for the Environment andLocal Government in October 1998. This wasaddressed chiefly to local authorities, and provideda national policy framework for the adoption andimplementation by them of strategic wastemanagement plans, under which specific nationalobjectives and targets would be attained. Thefollowing targets over a fifteen-year timescalewere established:

• diversion of 50% of household waste fromlandfill;

• the development of composting and otherbiological treatment facilities capable oftreating up to 300,000 tonnes of biodegradablewaste per annum;

• recycling of 35% of municipal waste;

• recycling of at least 50% of construction and

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demolition (C&D) waste within a five yearperiod, with a progressive increase to at least85% over fifteen years.

Alternative systems for the collection andtreatment of wastes, involving the provision ofan integrated waste management infrastructure,are prerequisites if these targets are to be realised.

While numerical targets were not set in relationto waste prevention and re-use, progress towardsmeeting the overall objective of stabilising andreversing growth in waste generation will bemeasured by the National Waste Database Report.

1.6 Waste Management Planning

Meaningful and comprehensive wastemanagement planning is an essential basis forimproved waste management performance. Mucheffort has been devoted at national, regional andlocal level since 1996 to delivering effective resultsin this regard.

From the outset, most local authorities (31 out of34) have adopted a regional approach to thisplanning process, with a view to the more efficientprovision of services and infrastructure. Financialassistance, through Structural Funds, supportedauthorities in commissioning or carrying outpreliminary waste management strategy studies,which created an informed context for evaluatingavailable options and identifying the measures,most likely to optimise waste management.

Irish waste management is now moving from planto implementation, following the WasteManagement (Amendment) Act 2001, and takingfull account of the waste hierarchy. The statutoryobjectives of the waste management plans madeunder the Waste Management Acts, 1996 and 2001are to:

• prevent or minimise the production and harmfulnature of waste;

• encourage and support the recovery (includingrecycling) of waste;

• ensure that such waste as cannot be preventedor recovered is safely disposed of; and

• address the need to give effect to the polluterpays principle.

In general, the regional plans provide forcomprehensive and integrated waste services and

infrastructure to meet current and anticipatedneeds. Local authorities now need to deliver earlyand sustained progress in the implementation ofall aspects of these plans, particularly those dealingwith segregated collection services, wasteminimisation, local waste recycling infrastructureand public education and awareness.

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PaperGlassPlasticMetalsTextilesOrganicsOthers

Compostition of Household WasteLandfilled in Ireland

19.5%

23.8%

5.5%

32.9%

11.9%3.5%2.9%

PaperGlassPlasticMetalsTextilesOrganicsOthers

Estimated Compostition of CommercialWaste Landfilled in Ireland

9.9%15.1%

58.6%

3.4%10.6%

1.7%0.6%

1.7 The EU Context

Much of the law in relation to waste managementin Ireland derives from measures adopted at an EUlevel. Therefore, measures undertaken by Irelandin support of an improved waste performancemust also-

• have regard to certain broad principles that formthe basis of EU environmental and wastepolicies; and

• respect the obligations of the Single Market.

The main EU legislative initiatives in relation towaste management are listed in Appendix I.

1.8 Implementation: SupportingConsiderationsRegulationA sophisticated and effective waste managementregime requires sound legislative and regulatorysupport. Ireland has a modern, up to datelegislative framework for waste managementunder the Waste Management Acts 1996 and 2001.Detailed implementation is generally provided forby regulations made under those Acts. This PolicyStatement outlines a number of areas wherefurther regulatory control, as envisaged under theActs, may be introduced in support of prevention,re-use and recycling initiatives. The necessity forfurther legislation will be kept under review. NewDirectives and other initiatives at EU level willcontinue to influence policy development inIreland and will necessitate continuous regulatoryinnovation to comply with EU law.

EnforcementThe introduction of a modern regulatory regimein recent years requires a major cultural change inrelation to enforcement on the part of regulatorsand operators. Performance in this regard has notkept pace with regulatory reform. On the localauthority side, the reforms introduced by BetterLocal Government will support improvedenforcement performance. Recent Supreme Courtclarification of local authority prosecution powerswill also assist. Paragraph 6.2 outlines enforcementmeasures to be taken in support of producerresponsibility initiatives. Assistance will also beapplied from the Environment Fund to strengthenlocal authority enforcement. Consideration is beinggiven to strengthening the enforcement provisionsof the Waste Management Acts.

Use of Fiscal and Market Based InstrumentsFiscal measures, either by use of incentives ordisincentives, can play an important role in theachievement of national waste managementobjectives.

Fiscal measures can be successful in generatinghigh levels of waste prevention and recycling:

• by providing a source of revenue (e.g. throughproduct charges, taxes on raw materials etc.)that can be used to fund waste minimisationand recycling initiatives; and

• by incentivising behaviour which will seek toprevent waste generation or encourage re-useand recycling as alternatives to disposal.

The Government has already acted to introducefiscal measures under the Waste Management(Amendment) Act 2001. The Act provides forthe introduction of two levies: a levy on plasticshopping bags and a levy on the landfilling ofwaste. A 15 cent levy on plastic shopping bagstook effect on 4 March, 2002 with the landfill levydue to come into effect later on in the year. TheAct provides that further levies may be applied toother goods and products subject to confirmationby the Oireachtas.

Producer responsibility initiatives, wherebyindividual economic sectors put in placemechanisms to recover and recycle the wastewhich they generate, generally require a financingmechanism to pay for the initiative (see Chapter 6).

The imposition of levies and other fiscal measuresmay also have negative side effects. For example,high landfill charges can lead to unauthoriseddisposal unless the penalties, and the risk of beingcaught, are such to discourage such activity. Fiscalmeasures must also respect the operation of theSingle Market. Therefore, the introduction of alevy in any particular instance must be judgedcarefully on the merits of the individual case.

While subsidies can also support best practice inwaste management, the use of direct Governmentoperational subsidy is not envisaged. In line withthe producer responsibility principle, the sectorswhich give rise to waste should pay the full costsof recovery and/or disposal. Producer responsibilityinitiatives require producers to take steps torecover waste or alternatively to contribute to, andparticipate in compliance schemes set up torecover the waste in question. These schemes in

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turn provide a subsidy for the collection andrecovery of material for recycling, which provideseconomic support for the recycling sector. Suchinitiatives, together with the increasing cost oflandfilling waste, stimulate and improve theeconomics of recycling.

The provision of grant assistance for capitalinvestment will, however, be provided for underthe National Development Plan and EnvironmentFund. Enterprise Ireland will also provide assistanceunder its programmes for innovative businessinitiatives in this sector.

1.9 Economic Impacts ofPolicy Statement

It is recognised that the full cost of a modernwaste management system must be borne by thepolluter in line with the polluter pays principle.Each player in the chain must share these costsfrom the manufacturer, distributor, retailer andfinal consumer. The introduction of waste chargesin all areas of the State is recognition of thisinternationally accepted principle. In implementingthe policies in this Statement, the Governmentrecognises the need to avoid any disproportionateimpact on persons in poverty or at risk of poverty.In fact the Policy Statement, in advocating theintroduction of charging on the basis ofweight/volume, presents an opportunity to reducewaste disposal costs through greater recyclingrates. In turn, business will continue to subsidisethe householder’s recycling activities through thedevelopment of producer responsibility schemessuch as the Repak scheme, which subsidises thecost of recycling packaging waste.

The continued development of a moresophisticated waste management system, with ahigh degree of segregation, recovery and recycling,will lead to many opportunities to establish newbusinesses in the waste management sector. Thissector has already seen much development inrecent years and it can be expected thatimplementation of the policies in this Statementwill lead to further job creation in the years tocome.

1.10 Timeframe and Review

The measures outlined in this policy statementwill support the achievement of the targets setout in Changing our Ways. Regular monitoring ofprogress will be undertaken and appropriateadjustments made as necessary, regard being had

to any advice and recommendations from theNational Waste Management Board. Publishedreview and reporting on performance will takeplace at 3 yearly intervals.

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Prevention means reducingthe quantity and harmfulnessto the environment of wasteand the materials and thesubstances contained therein.Waste prevention initiativescan therefore be successfullyapplied at any time in thelife-cycle of a material orsubstance, including in theproduction process, themarketing, distribution,or utilisation stages, up toeventual discard at the endof life stage.

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Key Actions

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National Waste Prevention Programme

Legislative and OtherGovernment Measures

Prevention is the most desirablemethod of waste managementsince the absence of waste totallyeliminates the need for handling,transportation and treatment ofdiscarded materials. Preventionof waste provides the highest levelof environmental protection,optimises the use of availableresources and removes a potentialsource of pollution.

Minimisation means anytechnique, process or activitythat either avoids, reduces oreliminates waste at its source,or results in re-use or recycling.Waste minimisation requires allstakeholders in the managementchain to adopt a proactive role inreducing the quantity andharmfulness of waste ultimatelysent for disposal and by choosingproducts which create the leastharm to the environment duringproduction, in operation as wellas in waste treatment.

Very significant benefits derivefrom waste prevention andminimisation, including:

• reducing the extent ofemissions, discharges andpollution associated with theproduction, management anddisposal of waste;

• reducing the overall costs ofwaste management; and

• conserving energy and naturalresources.

2.1 Key actions

Waste prevention and minimisation are thepreferred management options on the wastehierarchy.

The Government will –

• establish a well-resourced National WastePrevention Programme (NWPP) to deliversubstantial results on waste prevention andminimisation;

• establish a "Core Prevention Team" (CPT) withinthe EPA to drive this initiative;

• establish a Prevention Programme SteeringGroup, that will co-ordinate/liaise with publicauthorities at all levels, monitor the overallthrust of the National Waste PreventionProgramme, and provide strategic direction tothe Core Prevention Team;

• provide seed funding of €1.27 million in 2002from the Environment Fund to facilitate theimmediate establishment of the Core PreventionTeam and provide ongoing support for theTeam;

• commit funding from the Environment Fund tosupport specific prevention initiatives;

• introduce a system of mandatory waste auditsand waste reduction programmes for businesseswhich fall below the threshold for IntegratedPollution Prevention and Control licensing.

2.2 The Current Situation

Prevention is one of the most challenging aspectsof waste management because it demands a widerange of linked initiatives, presenting a directchallenge to householders as well as commercialand industrial waste producers. Excessive waste isgenerated through poor product development,inefficient production or manufacturing processes,creation of disposable or short-duration goods,and unsustainable consumption patterns - forexample, by purchasing excessively packagedproducts. Taking action to prevent waste beinggenerated in the first place is fundamental to theoverriding objective of de-coupling economicgrowth from growth in waste arisings.

The Waste Management Act 1996, provides a legalframework for waste prevention and minimisation.A number of cleaner technology and wasteprevention and minimisation initiatives havealready been implemented including by, or underthe aegis of, the EPA, Enterprise Ireland and the

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Clean Technology Centre (Cork). For example,under the National Development Plan 2000 - 2006and through the Cleaner Greener ProductionProgramme (CGPP), the EPA is offering grant aid toselected businesses, which seek to improve theirenvironmental performance. A total of €4.57million has been provided for this scheme.

An intensive and well structured waste preventionprogramme must now be put in place with theoverall objective of stabilising, and in the longerterm reversing, the growth in waste generation.

2.3 National Waste PreventionProgramme

The Government will now establish an ambitiousand well-resourced National Waste PreventionProgramme to deliver substantive results on wasteprevention and minimisation across all wastestreams. The Programme, based in the EPA, will becomprehensive, integrating a range of initiatives,addressing education and awareness measures,technical, training and financial assistance, andincentivisation mechanisms.

The Waste Prevention Programme will encompassthe Hazardous Waste Prevention Programme, theestablishment of which is recommended in theNational Hazardous Waste Management Planpublished in July, 2001. A Prevention Programmefocusing solely on hazardous waste arisings wouldbe unnecessarily limited in scope. Measures withpotential to impact on the generation ofhazardous waste from production processes shouldequally result in the prevention and minimisationof non-hazardous waste arisings from industry.

Under the Prevention Programme, significantfinancial investment and technical assistance willbe necessary to achieve an overall "win-win"situation for both industry and the environment.

In general, there is more opportunity to secureprompt and significant results from preventioninitiatives in the commercial and industrial sectorsthan for waste arisings from households. However,changes in personal behaviour, applied in thehousehold, can also secure behavioural changes inthe workplace towards the adoption ofpreventative practices.

2.3.1 Core Prevention TeamA Core Prevention Team (CPT) will be establishedand resourced as a distinct unit within the EPA, todraw up and implement the new National Waste

Prevention Programme, in close co-operation withother key stakeholders.

2.3.2 Prevention Programme Steering GroupWhile the Core Prevention Team willbe the key driver of the NWPP, it will also engagewith and co-ordinate the activities of relevantpublic authorities at all levels, and ensureproductive liaison with other relevant bodies.A Prevention Programme Steering Group willfacilitate such co-ordination and liaison, monitorthe overall thrust of the National Waste PreventionProgramme and provide strategic directionfor the Core Prevention Team. This PreventionProgramme Steering Group will involverepresentation from or on behalf of -

• Enterprise Ireland;

• EPA;

• the Clean Technology Centre;

• local authority representative associations;

• the Departments of the Environment and LocalGovernment, Agriculture, Food and RuralDevelopment, Marine and Natural Resources,Enterprise, Trade and Employment;

• the Irish Business and Employers Federation(IBEC);

• the Small Firms Association (SFA);

• Chambers of Commerce of Ireland;

• Comhar (the National Sustainable DevelopmentPartnership); and

• environmental NGOs.

2.3.3 Functions of the Core Prevention TeamThe National Waste Prevention Programme willhave two principal strands:

• A Sustainable Production Programme: Thisinitiative will consider how waste can beeliminated or reduced in manufacturing andindustrial processes, and at the packaging stage.A range of instruments and methodologies existto assist in the implementation of such aninitiative;

• A Product Waste Programme: Products arediverse in function, characteristics and processingrequirements. Accordingly, product waste needsto be tackled in a different manner to processwaste, through the use of initiatives andinstruments such as awareness raising, incentivesand disincentives. Product waste is generated in

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response to products being placed on the market.

It is therefore important to place the onus onproducers who have the capability to makeproduct changes.

The primary task of the Core Prevention Team willbe to generate practical, meaningful andmeasurable waste prevention by all stakeholdersand, where appropriate, to initiate and implementnecessary actions to this end. Accordingly, its remitwill include –

• developing and prioritising programmeobjectives, with the goal of stabilising wastearisings and reversing current trends in wasteproduction;

• identifying the key organisations best placed(either individually or collectively) to contributeto the achievement of these objectives, andpursuing their engagement in support of theprogramme;

• identifying and prioritising necessary actions tobe initiated directly by or on behalf of the CorePrevention Team in pursuit of the programmeobjectives;

• co-ordinating the activities of the differentstakeholders;

• identifying appropriate targets or performanceindicators, and devising a representativemethodology for the measurement of nationalperformance in relation to waste prevention andminimisation.

In implementing a progressive and ambitiousPrevention Programme, the Core Prevention Team will –

• advise and contribute to policy development andaction in relation to waste prevention andminimisation, including the provision of adviceto the Minister with regard to actions within theremit of Government which are necessary ordesirable in support of improved nationalperformance;

• prioritise and target relevant activities within theindustrial/commercial sector;

• provide financial support for significant wasteprevention initiatives;

• support the establishment of local or regionalWaste Minimisation Clubs and Networks;

• initiate or facilitate research to identify potentialconstraints and incentives with regard to wasteprevention/minimisation initiatives;

• provide advice and support on all aspects ofwaste prevention and minimisation to relevantstakeholders, by means of - training programmes,- the provision of help-line services, and- the publication of procedural manuals andother relevant guidance;

• finance or initiate appropriate R&D anddemonstration projects that can provide visibleand factual evidence of the benefits of specificwaste prevention and minimisation initiatives;

• monitor and evaluate internationaldevelopments in relation to best practice;

• establish and finance a best practice programmeand ensure effective dissemination of results;

• monitor and evaluate waste audits and wastereduction programmes submitted on foot ofstatutory requirements (see paragraph 2.4.2),engage with businesses concerned to supportconsequent waste reduction initiatives, and liaisewith local authorities in support of theirenforcement function in this area; and

• report annually on progress achieved.

2.3.4 FundingAll relevant stakeholders with a developmentalor promotional role will be expected to providecomplementary funding by means of directsubvention of the Prevention Programme orthrough increased financial commitments toenhance service delivery within the overall scopeof the Programme.

The Principle of Producer Responsibility requiresindustry and business to contribute to the cost ofminimising the environmental impact of theiractivities. In any event, experience indicates that asuccessful Prevention Programme will result in costsavings, to industry in particular, through reducedwaste treatment and disposal costs, greater processefficiencies and better innovation. Accordingly, anequitable mechanism will be developed throughwhich an acceptable level of financial contributionwill be provided, directly or indirectly, by industryin support of the National Waste PreventionProgramme. IBEC and the SFA, as well as theEnterprise Agencies, are being invited to makeproposals in this regard. As benefits will accrue tobusiness utilising the services of the PreventionProgramme it is expected that business willsignificantly fund its cost by purchasing thoseservices.

Arrangements for the Core Prevention Team will

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be put in place in 2002.

2.4 Legislative and OtherGovernment measures

A number of initiatives will now be undertakento underpin the National Waste PreventionProgramme. The business community has most togain in supporting waste prevention measures interms of efficiency in production costs andreduction in waste management expenditure.The Government, therefore, invites the businesscommunity to support and participate in theNational Waste Prevention Programme.

Initiatives to support the programme are outlinedbelow:

2.4.1 General Obligation regarding WastePrevention and MinimisationUnder the Waste Management Act 1996, there is ageneral legal obligation on those carrying out anyagricultural, commercial, industrial andmanufacturing activity to take all reasonable steps(including better product design) to minimise theproduction of waste from their activities and fromany product manufactured as a result. The Ministerfor the Environment and Local Government isempowered to regulate any particular activity forthe purposes of preventing or minimising waste.Research will be commissioned under the NationalWaste Prevention Programme to determine anappropriate approach and methodology toimplement this legal requirement in a systematicmanner, and to provide clear guidance to varioussectors as to how best they may fulfil their legalobligations in this area.

2.4.2 Waste Audits and Waste Reduction ProgrammesA Waste Audit represents a systematic study of thewaste management practices of an organisation.It promotes efficient use of resources within theorganisation and contributes to a greaterawareness of present and potential problems andthe means of solving them.

The main objectives of a Waste Audit are to:

• identify and document the management ofwaste and the use of resources within anorganisation;

• improve the overall environmentalperformance of an organisation in relation to waste management;

• identify cost savings (in terms of resource usage, waste minimisation, etc.) within an

organisation; and

• promote environmental awareness within theorganisation.

A Waste Audit is an essential first step inidentifying and documenting the baseline situationand the conditions that exist within anorganisation. Such audits will also serve toaccelerate the development and implementationof an effective Waste Reduction Programme andEnvironmental Management System withinorganisations.

Based on advice from the Core Prevention Team,regulations will be introduced to requirebusinesses to conduct waste audits, and implementconsequent waste reduction programmes, inrelation to their activities. These obligations willapply to concerns which do not already operate arecognised environmental management system orwhich are not subject to IPC licensing by the EPA.The Core Prevention Team will be asked as apriority to develop criteria for the introduction ofwaste audits and for the proper and effectiveconduct of waste audits by the business sectorsinvolved.

The Public sector must also play its part in reducingthe production of waste. See Chapter 8 on PublicSector Waste Management .

2.4.3 Awareness of the Benefits of Waste Prevention and MinimisationCreating awareness of the benefits of wasteprevention and minimisation initiatives is a keyelement in promoting sustainable processes andproducts. Part of the Core Prevention Team’s remitwill be to ensure that business is made aware ofthe advantages of participating in the Programme.

The National Waste Management Board will bemandated to take on a strong role in developingwaste management awareness raising andeducational campaigns generally. In this regard it isrecognised that schools should be a major targetof such campaigns as this is a particularly effectiveway of building up long term benefits ofenvironmental awareness.

The Department of the Environment and LocalGovernment will, as a part of its environmentalawareness campaigns ensure that the wasteprevention and minimisation message is deliveredeffectively.

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In addition, ENFO, the environmental informationservice of the Department, provides a substantialresource for awareness, education and research onenvironmental matters within Ireland. Specialemphasis will be placed on waste prevention andminimisation initiatives in the design of futureprogrammes and exhibitions.

A systematic programme will be put in place todeliver better waste management performance byall public authorities; this will encompass measuresfor the prevention and minimisation of wastearisings. The programme is outlined in more detailin Chapter 8.

2.4.4 Implementation of waste management plansThe regional waste management plans identify theneed for local authority action in relation to theprevention and minimisation of waste, andtypically provide for the appointment of -

• Environmental Education Officers within eachauthority, to promote and foster wasteminimisation in communities, schools, industryetc.; and

• Regional Industrial Waste Minimisation Officersto increase awareness, especially among small-to-medium enterprises (SMEs) and provide trainingand support for local minimisation initiatives.

The Core Prevention Team will be able to reach a wider audience in the SME sector by using theRegional Waste Minimisation Officers as contactpoints. In turn the Waste Minimisation Officersmay need to refer SMEs to the Core PreventionTeam for the provision of specialist advice andservices.

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This Chapter discusses the current status of waste recyclingin Ireland. Detailed actions topromote re-use and recycling(including biological treatment)are set out in Chapters 4 to 7.

Where reference is made to wasterecovery, this encompasses therecovery of waste to facilitatere-use, recycling (includingbiological treatment) or energyrecovery.

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Constraints on the Improvementof Irish Recycling Performance

The European Experience- How We Compare

Challenges for the Future

Collection Infrastructure

Reprocessing and RecyclingInfrastructure

Current Recycling Performancein Relation to Priority

Waste Streams

Overview of Ireland’sInfrastructural Deficit

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3.1 Constraints on theImprovement of Irish RecyclingPerformance

Some of the more significant constraints onrecycling activity in Ireland, historically, have been:

• the ready availability of cheap landfill facilities;

• public and business indifference to wastemanagement and the absence of a traditionof recycling within society;

• a perception of the inconvenience of recycling;

• the degree of contamination within materialcollected for recycling;

• undeveloped and fluctuating markets forrecyclables;

• the absence of an adequate system of wastecharges;

• low population which has hampered economiesof scale;

• the lack of available recycling and reprocessingfacilities and lack of access to the facilitieswhich do exist.

There have been major changes in the Irisheconomy in recent years. The demographicstructure and settlement patterns of the countryare also changing. There is considerable potentialfor enhanced North/South and East/West co-operation to create economies of scale forrecycling initiatives. Accordingly, earlier reasons forpoor performance should not now impede thenecessary measures that must be undertaken toincrease the level of recycling within Ireland.

3.2 The European Experience –how we compare

A European Commission report in 1999 (see tableopposite) on the implementation of wastelegislation within the European Union, based onofficial data from Member States, indicates that -

• Ireland falls within the middle range for thegeneration of waste arisings per capita;

• The percentages of reported waste recyclingdiffer widely from 0% to 44%. Only threeMember States achieved a recycling rate of 40%or above whereas 3 States did not report anyrecycling. The EU mean was 15%. Ireland at 7.8%in 1995 falls in the lower range for recycling;

• thermal treatment with energy recovery is

utilised by almost all other EU Member Statesand plays a significant role in wastemanagement practice within most of these(seven Member States reported thermaltreatment of between 23% and 55% ofmunicipal solid waste arisings); and

• the target of 35% recycling of municipal solidwaste set out in Changing Our Ways is a realisticambition.

It should be noted that there are inconsistencieswithin the data submitted to the EU by individualMember States which are reflected in the table.These make direct comparisons difficult. Thefigures do not measure the extent of recovery byre-use in individual states.

The European Commission has also published dataon the management of packaging waste withinthe European Union, which indicate that Ireland’srecycling rate for packaging waste is very much inthe lower range of EU performance, althoughIreland expects to have met the target of 25%recovery of packaging waste in 2001.

Centralised composting facilities for the treatmentof organic wastes are well established in other EUcountries. In 1997 around 15% of the organicwaste fraction of municipal solid waste in the EUwas centrally composted. Within this average,Holland, Denmark, Austria and Germany achievedhigh composting levels of between 45% and 90%.There is clearly good potential for a greatlyimproved performance in the composting oforganic waste in Ireland.

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Management of Municipal Solid Waste withinEU Member States

Country Population Total Arisings Unit Arisings Recycled Thermal Landfilled Other Date of (million) (tpa) (kg/head) (tpa) Treatment (tpa) (tpa) Treatment (tpa) Data

Austria 7.7 2,775,000 360 1,263,000 431,000 1,261,000 0(100%) (45.5%) (15.5%) (45.4%)

Belgium 10 4,632,562 463 1,828,359 1,323,336 1,480,867 0 1997(100%) (39.5%) (28.6%) (32.0%)

Denmark 5.2 2,767,000 532 777,000 1,545,000 428,000 16,000 1996(100%) (28.1%) (55.8%) (15.5%) (0.6%)

Finland 5.0 980,000 196 169,669 32,013 560,229 218,089 1997(100%) (17.3%) (3.2%) (57.2%) (22.3%)

France 56.0 26,000,000 464 1,500,000 10,500,000 12,200,000 1,800,000(100%) (5.8%) (40.4%) (46.9%) (6.9%)

Germany 79.0 39,068,000 495 11,562,000 8,992,000 17,904,000 - 1997(100%) (29.6%) (23.0%) (45.8%)

Greece 10.0 3,197,000 320 226,000 1,000 2,970,000 - 1992(100%) (7.1%) (0.0%) (92.9%)

Ireland 3.5 1,503,171 429 117,732 0 1,383,439 - 1995(100%) (7.8%) (0%) (92.2%)

Italy 58.0 25,400,000 438 - 1,400,000 24,000,000 - 1995(100%) (5.5%) (94.5%)

Luxembourg 0.4 207,534 519 14,952 115,559 77,023 - 1997(100%) (7.2%) (55.7%) (37.1%)

Holland 15.0 7,945,000 530 3,520,000 3,220,000 1,205,000 1997(100%) (44.3%) (40.5%) (15.2%) -

Portugal 10.0 3,480,000 348 - - 3,060,000 420,000 1994(100%) (87.9%) (12.1%)

Spain 39.0 14,296,000 367 - 625,000 11,901,000 1,770,000 1994(100%) (4.4%) (83.2%) (12.4%)

Sweden 8.5 3,200,000 376 500,000 1,300,000 1,200,000 200,000 1994/(100%) (15.6%) (40.6%) (37.5%) (6.3%) 1995

UK 57.0 26,500,000 465 1,868,000 2,316,000 22,080,000 236,000 1995/(100%) (7.0%) (8.7%) (83.3%) (0.9%) 1996

EU 364 161,951,260 445 23,346,712 31,800,908 101,710,550 4,660,089 -(100%) (14.4%) (19.6%) (62.8%) (2.9%)

Source: Implementation of Waste Legislation within the European Union [Report COM (1999) 752 Final],

prepared by the European Commission and issued 10th January 2000.

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3.3 Challenges for the Future

If Ireland is to achieve waste recycling levelscomparable to best European Union practice,the challenges to be overcome include:

• creating appropriate social, economic andenvironmental conditions to facilitate increasedlevels of waste re-use, recycling and energyrecovery, including, where necessary, by theappropriate use of economic instruments such aslevies to create those conditions;

• influencing public attitudes so that a recyclingculture replaces the ‘throw away’ society;

• motivating business and industry to practiceresponsible behaviour in wasteprevention/recycling;

• implementing separate collections systems forwaste that is segregated at source by producers(including householders);

• undertaking sorting and pre-treatment ofseparately collected wastes at appropriatefacilities;

• reprocessing of wastes delivered to requiredspecifications into useful recycled products;

• ensuring that mechanisms are put in place toovercome fluctuations in market prices forrecyclable material; and

• successful marketing of the recycled products.

3.4 Collection InfrastructureWaste collection practice is set to changesignificantly, and there has already been a steadyimprovement in infrastructure for the collection ofrecyclable materials. There are basically two distincttypes of collection systems for recyclables –

• ”bring” systems, which entail the provision andservicing of “bring banks” for the collection ofglass, metals, paper, plastics and textiles, and“civic amenity facilities” where the public canadditionally deposit bulky waste items such aselectrical goods and DIY waste as well ashazardous materials such as batteries and wasteoils; and

• ”collect” systems, where a specialist vehicle isprovided for the collection of recyclable wastematerials that have been segregated at source.This includes both ”kerbside” (domestic) and”commercial” collections.

3.4.1 Bring banksThere are now an estimated 1,300 Bring Banksthroughout the country. This indicates a density

of one facility for every 3,000 population, thoughthere are significant variations. Only one localauthority area has achieved a density of 1:1000population. It is estimated that the EU average is1:1200.

There are a small number of integrated recyclingschemes which have been developed in partnershipwith private enterprise in rural population centres incertain areas; where these operate they provide adense network of convenience bring centres for useby the public. The regional waste managementplans provide for an expanded network of multi-material Bring Banks, particularly in rural areaswhich are unsuited to kerbside collection systems,with a typical target density of between 1:500population and 1:1000 population.

3.4.2 Civic Amenity FacilitiesThe National Waste Database reported that, in1998, there were a total of 38 Civic AmenityFacilities. A number of additional facilities havebeen opened in the interim. Considerable effortshave been made in recent years to improve boththe standards of design and operation as well asthe range of materials accepted at these facilities.The regional waste management plans provide foran expanded network of an estimated 85 moderncivic amenity centres strategically situatedthroughout the country. This network will providethe public with convenient and accessible facilitiesto cater for the reception, storage and transfer toappropriate processing facilities of a wide range of

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recyclable materials and ”green” wastes, as well ashousehold hazardous wastes.

3.4.3 Separate Collection of ”Dry” RecyclablesThe former “Kerbside Dublin” pilot scheme for thecollection of segregated dry (i.e. non-organic)recyclables from households has now been replacedwith a considerably upgraded kerbside collectionscheme (initially for paper and metals) in the DublinRegion. The scheme, which is operated by a privateconcern on behalf of the Dublin local authorities,serviced some 156,000 households in the region byDecember 2001, and progressively will extend up to280,000 households (80% of those in the Region).Segregated collection schemes have also beenintroduced in Galway, Nenagh and parts of Louthand Meath. The regional waste management plansgenerally provide for the progressive establishmentof segregated collection services for dry recyclablesin all urban areas where it is economically feasible.

3.4.4 Separate Collection of Organic Waste Pilot segregated collection services for householdorganic waste (kitchen (food) and garden (green)waste) have been established in Cork, Waterford,Limerick, Galway, Nenagh and Tralee, andexperience to date has been very encouraging.The Regional Waste Management Plans generallyprovide for the progressive development of thesegregated collection schemes, to include sourceseparated biowaste from both households andcommercial/institutional producers.

3.4.5 Collection of hazardous wastesLarge industry utilises commercial hazardous wastecollection services which transfer hazardous wastesto recovery and disposal facilities in Ireland andabroad. However these services are generally notavailed of by generators of small amounts of suchwaste which arise in Small to Medium Enterprises(SMEs), services, agriculture sectors or byhouseholds.

Local authorities are increasingly contracting forthe provision of mobile collection services(”chemcars”) which make regular collections ofhazardous wastes from householders and smallbusinesses at pre-determined drop-off points.

3.4.6 Material Recovery FacilitiesThere are currently a number of Material RecoveryFacilities (MRFs) in operation to facilitate theseparation and recovery of mixed or partiallycommingled dry recyclables (paper, glass, metalsand plastics). These Material Recovery Facilities aregenerally compact and place considerable reliance

on manual sorting. In addition, there are a numberof private facilities for the segregation ofcommercial and construction & demolition (C&D)waste streams. These facilities have historicallyoperated on a strictly commercial basis and havebeen routinely taken out of commission duringperiods of depressed market price for materialssuch as cardboard and paper. The Repak PaymentScheme (see paragraph 6.4.1), has improved theeconomics of such facilities and helps to ensurethat cash flow can be maintained during periods oflow market value for recyclables. The RegionalWaste Management Plans provide for a network of

10 strategically situated MRFs throughout thecountry to cater for the reception, separation, pre-treatment and transfer to reprocessors of all dryrecyclables originating from municipal Bring Banks,Civic Amenity Facilities and ”kerbside” collectionservices.

3.5 Reprocessing and RecyclingInfrastructure

Recycling infrastructure for commercial anddomestic waste is relatively undeveloped inIreland. The EU-funded Operational Programmefor Environmental Services 1994-99, administeredby the Department of the Environment and LocalGovernment, allocated a total of nearly €10.16million to assist some 70 or so private sector andlocal authority recycling projects, supporting totalexpenditure in excess of €25.4 million. Almost €3.8million was also allocated to 10 projects involvinghandling and treatment facilities for hazardouswastes. However, there are still significantinfrastructural deficits.

A Recycling Directory of Ireland – A Guide to theReprocessors and Recyclers in Ireland waspublished by NI 2000 and the Tipperary Rural andBusiness Development Institute in February, 2001.This provides comprehensive information onmaterial recyclers and reprocessors operatingthroughout the island of Ireland. Details areavailable on www.irelandrecycling.ie.

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3.5.1 Glass Processing FacilitiesVirtually all container glass (bottles and jars)collected within Ireland has been used for theproduction of cullet.

To date, the primary outlet for glass recyclate inIreland has been the Irish Glass Bottle Company(IGB), which accepted glass in crushed form (i.e.cullet). However, the announcement on 28February, 2002 that the Irish Glass Bottle Companyin Ringsend was to close presents a challenge toidentify alternative outlets for glass. Use of culletin glass manufacture has been estimated atapproximately 50,000 tonnes.

A modern cullet production plant has beendeveloped by the Rehab Recycling Partnership(RRP), with a potential capacity of up to 40,000tonnes of cullet per annum, depending on itsintensity of operation (actual output is about25,000 tonnes per annum). This plant can producecullet in accordance with the stringent colour andmaterial specifications, through an almost entirelyautomated process. Rehab Recycling Partnershipproposes to expand its overall output considerablyover the next two years. A modern glassmanufacturing plant has also been developed inNorthern Ireland, which receives a small amount of glass cullet originating from the South. Thereare also a number of less sophisticated glasscrushing plants in operation.

While most of the glass collected for recovery isgreen (mainly wine and beer bottles), there isgreater demand for clear glass cullet for theproduction of new containers. A growingimbalance between supply and demand is resultingin a surplus of green cullet for which it is difficultto obtain markets. This is the case in othernorthern EU countries also. A pilot project on theN2 in Co. Monaghan has used green glass as anelement of the aggregate within the bituminousroad base. While this offers a potential new outlet,the use of glass is more expensive than traditionalmaterials.

There have traditionally been few collectionsorganised in Ireland to facilitate the recovery offlat or plate glass. Waste plate or flat glass istechnically suitable for use in the remanufacture ofglass containers, but the segregation, collectionand reprocessing operations would require verystrict control and management so that the materialcould be used to produce a consistent quality ofcullet capable of meeting the stringentspecifications for container glass. However, there

appears to be adequate international demand forflat glass to cater for all such glass that canrealistically be collected within Ireland (primarilyfrom the manufacturing and construction anddemolition industries).

3.5.2 Paper Reprocessing Facilities There are currently around 37 private companiesoperating in Ireland which collect paper forrecycling. There is only one commercial paper millin Ireland, which is operating at full processingcapacity of c. 40,000 tonnes per annum and canaccommodate no additional recycled paper. Exportmarkets have been identified which will accept allwaste paper materials that are generated.International markets for recyclable paper arecurrently recovering from a cyclical downturn indemand and market price. However, the value ofwaste paper on these markets is variable and asignificant charge can be imposed by collectors tocover the cost of paper recycling when prices aredepressed. Some small enterprises have developedshredding facilities to supply animal bedding andthere is a growing market in shredded paper forthis use.

3.5.3 Metal Reprocessing FacilitiesIn 2000, some 184,000 tonnes of ferrous metalswere collected for recycling in Ireland.Approximately half of the collected metals weresent abroad for reprocessing with most of theremainder being processed by the Irish Ispat steelmill in Cork. With the closure of Irish Ispat, all thismetal must now be exported. Recovered steel cansmust currently be sent to the UK for reprocessing.

There is some limited domestic reprocessingcapacity for non-ferrous metals (e.g. aluminiumand tin). Non ferrous metals are also exportedabroad for reprocessing.

The market for metal recyclables is currently at alow level, at a time when scrap metal merchantsalso face increased costs in upgrading existingfacilities to meet higher environmental protectionrequirements arising under new permittingobligations.

Paradoxically, increased landfill costs canadversely affect metal recycling. Wastegenerators, seeking to avoid high landfill charges,are now diverting to metal recyclers scrap whichcontains less recoverable metal than heretofore.Accordingly, a greater amount of unavoidableresidue is produced by metal recyclers, withassociated cost implications.

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3.5.4 Plastic Reprocessing Facilities There are a number of commercial plasticgranulation plants in operation in Ireland whichconcentrate on significant sources of plastic wastematerials. A network of suppliers who typicallycollect industrial and supermarket plastic waste aswell as plastics accumulated from ”bring” centreand kerbside collections generally service theseplants. Some of these operations also reprocess thegranulated material into products such as plasticrefuse sacks and shopping bags.

Around 6,000 tonnes of farm plastics (bale wrap)are recovered annually – representing some 40%of farm plastics placed on the market. Most of thisplastic is sent to the UK for reprocessing.

One factory in Co. Cavan manufactures fibres foruse as insulation material in jackets etc. fromrecycled PET fibres (derived from recycled plasticsoft drink bottles). The PET bottles are processedinitially in Holland from reclaimed beveragecontainers.

Collected waste plastics are generally regranulatedfor subsequent use in the manufacture of newplastic products. However, collection and recyclingof plastics is especially problematic. This is becausethere are a large number of different plasticmaterials within the waste stream, and these aredifficult to distinguish - many items also contain anumber of different grades of plastic. End marketspecifications for recycled plastic are very high - inmany situations, segregation into individual plasticmaterial types must be absolute. In addition, theweight to volume ratio of the plastic is very low -this creates problems for economic transportationof recyclate.

As plastics are a derivative of the oil refiningindustry, the cost of virgin plastic is closely relatedto the ”spot price” of oil, and this largelydetermines the market value of recycled plasticgranulate, thereby creating an obstacle to thedevelopment of long term contracts and forwardbusiness planning.

3.5.5 Timber There is a healthy market in shredded timber foruse in the manufacture of medium densityfibreboard (MDF). Most major Waste Contractorshave suitable equipment and routinely undertakethe shredding of waste timber. A number of WasteServices' Contractors and Recycling Enterprises areactively engaged in the shredding of timberpallets. First Grade (unimpregnated) shredded

timber is typically sold to the chipboardmanufacturing companies. Second Grade woodchippings (impregnated) can be used as anindustrial boiler fuel. Unimpregnated shreddedtimber can also be used to produce compost.

3.5.6 Textiles There are a number of facilities for the sorting andgrading of collected textiles. High quality garmentsare offered for resale in second-hand retail outlets,while the lighter fabrics are exported to ThirdWorld countries for re-use. Textiles of marginalquality are cut into uniform pieces for use asindustrial cleaning cloths.

3.5.7 Biological Treatment Facilities As mentioned in paragraph 3.4.4, there are anumber of small centralised composting facilitiessupporting the pilot biowaste collection services inLimerick and Kerry, as well as a number of ”greenwaste” composting facilities which cater for theprocessing of clean garden and landscapingwastes.

The Regional Waste Management Plans providefor the construction of 16 – 17 central compostingfacilities strategically situated in each region. Inaddition, some local authorities have introduced,or intend to introduce, pilot home compostingsystems.

3.5.8 Construction and Demolition (C&D) WasteRecycling Facilities Two facilities with significant capacity have beenestablished for the processing of the constructionand demolition waste that is delivered tomunicipal landfill sites in Dublin and Cork. Therehas also been an increased trend towards thecrushing of demolition concrete and masonry forbeneficial re-use as recycled aggregates onindividual construction sites. The Regional WasteManagement Plans provide for the development ofaround 18 C&D waste recycling facilities, to belocated close to major raw material sources andpotential product markets. This network will besupported by the provision of mobile crushingplant to serve population centres in rural areaswhere stockpiles of C&D waste are accumulated.The 1998 National Waste Database Report notesthat some 2.7 million tonnes of C&D waste wasreported as having been accepted at landfill sitesin Ireland. It is estimated that some 1.17 milliontonnes (43%) of this waste was beneficially used inlandfill sites for engineering purposes, as dailycover material and for final capping to facilitatelandfill restoration.

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3.6 Current recycling performancein relation to priority wastestreamsIn a resolution in 1990 on waste managementpolicy, the European Council of Ministers asked theEuropean Commission to draw up actionprogrammes on specific categories of waste. Thesewaste streams include End-of-Life Vehicles, usedtyres, construction and demolition waste, wastefrom electrical and electronic equipment,packaging waste, batteries and accumulators, PCBsand waste oils. These are known as priority wastestreams. (See also Chapter 6 on ProducerResponsibility initiatives.)

3.6.1 End of Life Vehicles (ELVs) and Waste TyresStatistics indicate that the number of End-of-LifeVehicles (ELVs) has risen dramatically over the lastnumber of years in Ireland, from some 55,000 in1993 to 160,000 in 1999. In Ireland today, it hasbeen estimated that some 75% of ELVs arerecovered/recycled, mainly for metals. The sectoroperates on two levels. End-of-Life vehicles areusually sent to dismantlers where usefulcomponents are recovered. The dismantlingbusiness consists of many small scale operatorswith widespread distribution throughout thecountry. Once dismantled, the hulk of the vehicle(either crushed or whole) is sent to a specialisedshredder operation where metals are extracted.The remaining shredder waste (plastics, foams,textiles etc) must be sent for disposal. Shreddersexist in Dublin, Cork and Limerick. Some ELVs inthe Border area are also sent to Belfast forshredding. While the dismantling and shreddingsector is long established and efficient, newstandards required under the EU Directive on ELVs

will require higher environmental treatment ofend-of-life vehicles and greater recycling/recoveryrates for parts and materials.

An Irish Tyre Industry Association survey in 1999found that approximately 70% of waste tyres areused by farmers for compacting and coveringsilage pits, 18% are suitable for retreading and theremaining 12 % are used for other purposes orlandfilled. There are no reports of widespread flytipping of tyres. Farming use will decline as plasticwrap is increasingly used for silage baling.Furthermore, the EU Landfill Directive will requireused whole tyres to be banned from landfill from2003 and shredded tyres to be banned from 2006.Alternative outlets will have to be developed, inaccordance with the principle of producerresponsibility, to cater for the recycling/recovery ofwaste tyres – see Chapter 6.

3.6.2 Electric and Electronic WasteFerrous and non-ferrous metals constitute thelargest proportions of electric and electronic waste.As a consequence, the well-established scrap metalindustry targets these items for recovery. Thiswaste is shredded and subjected to separationprocesses – the metal from a large range of”white” goods is extracted for recycling in thismanner. Non metallic residues are normally sentfor disposal and there is also a limited amount ofillegal dumping or fly-tipping. However, new EUregulations requiring the extraction anddestruction of insulating foam in fridge andfreezers containing ozone depleting substancesmean that alternate ways of dealing with thiswaste stream must be developed.

There is also a growing refurbishment sector whichrepairs and upgrades existing computer equipmentwhich can be passed on to schools, charities andvoluntary groups. Used printer cartridges are alsocollected for remanufacture.

Funding was provided in 2001 under the EU LifeEnvironment Programme for a proposal by DublinCity Council, (Heatsun) for Community BasedAction for prevention, re-use and recycling ofwaste electronic and electrical equipment.

3.6.3 Batteries Batteries consume more than 35 times the amountof energy during production than they are capableof producing in their life-time. They also have thepotential to cause significant problems for theenvironment at the end of life stage as aconsequence of their toxic and hazardousconstituents.

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Concrete, bricks, tiles, ceramics and gypsum based materialsSoil and stonesMetalsAsphalt, tar and tar productsOther

Estimated Compostition of Construction& Demolition Waste in Ireland

39%

6%

51%

2%2%

Lead acid batteriesA battery collection service for waste lead acidbatteries has been established on a commercial basisby the private sector. This initiative entails theprovision of collection containers at convenientlocations throughout the country, including garagesand industrial premises. A number of facilities arealso available for use by the public at municipalRecycling Centres and petrol service stations. Themixed plastic fraction is exported and the leadrecovered. This waste stream is targeted by scrapmerchants, and a number of businesses are involvedin the export of whole waste lead-acid batteries.

There are a number of processing facilities withinIreland that have significant additional capacity forthe crushing and baling of all lead-acid batteryarisings.

Small batteriesThere is limited infrastructure available for thecollection of small batteries, though some wastecontractors collect such batteries from customers asan additional service. A Schools Battery Recyclingscheme operates in County Kildare. These areexported for treatment in an environmentallyresponsible manner. The vast majority of small sizebatteries are disposed of within the normalmunicipal waste stream.

3.6.4 Waste Oils In excess of 35,000 tonnes of lubrication oil are usedannually in Ireland, from which some 24,000 tonnesof waste oil arises. Some 50 % of waste oil isrecycled.

Waste oil recovery is carried out on a commercialbasis at Portlaoise, and collection services aredirectly available to industry, shipping companiesand garages. Waste oil collection receptacles areusually provided at local authority civic amenityfacilities and are also available at a number ofrecycling centres situated within service stations.

3.7 Overview of Ireland’sinfrastructural deficitStrategic waste management planning, in line withChanging our Ways, has identified that there is aclear need rapidly to develop an integrated networkof appropriate facilities for the collection, sortingand treatment of recyclables. They must bedesigned to generate good quality segregated

waste that is suitable for delivery to reprocessingand biological treatment facilities.

• The primary collection infrastructure can readilybe provided by or on behalf of local authorities,or by the private waste industry;

• A network of centralised biological treatmentfacilities is required to deal with organic andgreen wastes. This requirement is only nowbeginning to be addressed, but the provision ofthe necessary capacity is readily within the scopeof local authorities and the private waste industry,once segregated collection services areimplemented;

• Ireland has relatively little indigenousreprocessing capacity for materials, with theexception of wood.

• Following the announcement of the proposedclosure of the glass manufacturing facility inRingsend, alternative outlets for glass need to beidentified;

• A significant amount of recovered paper is sentabroad for reprocessing, and additionalreprocessing capacity represents a potentialbusiness opportunity in Ireland to cater for theincreasing amount of paper being recovered.However, the installation of further reprocessingcapacity in this sector would be costly and will bedriven by clear commercial considerations on thepart of the paper industry;

• The metal recycling industry in Ireland is welldeveloped and has the capacity to recover wastemetals. Following the closure of Ispat, all ferrousmetals must now be exported for reprocessingand it is difficult to envisage an economic case forthe provision of reprocessing capacity in Ireland;

• Reprocessing capacity for plastics is very limited.However, such facilities can typically operate on amuch smaller scale than, for instance, paper orsteel mills. Relatively small-scale specialist facilitiesare technically and economically feasible, if anadequate and reliable supply of good qualitywaste plastics can be assured.

The waste management plans are radically alteringthe manner in which we deal with waste with amajor emphasis being placed on prevention, re-useand recycling initiatives. The following chapters setout the Government’s proposals for action tosupport these plans so as to recover and recyclemore of the waste which we create.

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Re-use means the use of a producton more than one occasion, eitherfor the same purpose or for adifferent purpose, without theneed for reprocessing. Re-useavoids discarding a material to awaste stream when the initial useof the product has concluded. It ismore preferable that a product bere-used in the same state, since itwill not then require additionalprocessing involving a furtherinput of energy and raw materials.

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The Challenge ofPromoting Re-use Systems

Re-use of Packaging Products

Support for Initiativesat EU level

Re-use of NonPackaging Products

Waste Exchangesand Swap Shops

Re-use of IT Equipment

re-use

Re-use can be increased throughthe repair and renovation ofproducts, their donation tocharitable causes or by directresale of the used materials.

Key ActionsRe-use of waste is the nextpreferred option on the wastehierarchy after prevention andminimisation.

The Government will –• Promote voluntary action by

relevant sectors of industry toimplement re-use systems orwhere necessary, applyappropriate policy instrumentsto ensure the implementation ofre-use systems in situationswhere this practice representsthe Best PracticableEnvironmental Option;

• Implement the 15 cent levy onplastic shopping bags andencourage their substitutionby re-usable bags;

• Support EU initiatives toincrease re-use, including whereappropriate mandatory re-usetargets;

• Encourage the re-use of non-packaging products;

• Promote the use of internet“waste exchanges” and “swapshops”;

• Develop guidance onrefurbishment and re-use of ITequipment, includingcomputers.

4.1 The Challenge of PromotingRe-use Systems

Organised re-use systems can lead to employmentopportunities - international studies indicate thatthe use of reusable packaging can create up to75% more jobs than corresponding one-waypackaging systems. However, a number of factorshave contributed to the decline of traditional re-use systems –

• increased automation and high labour costs,together with cheap primary raw materials, haveplaced labour intensive dismantling,recuperation and refurbishment activities at acompetitive disadvantage;

• increasing centralisation of production results ingreater transport distances for re-usable productsystems, increasing costs and reducingenvironmental benefits;

• increasing marketing convenience and ”built inobsolescence” in product design.

Re-use will not necessarily provide the BestPracticable Environmental Option (BPEO) in everycircumstance. It may be environmentally preferableto pursue a recycling or energy recovery option,where there is extensive transport, energy use orchemical washing associated with the collection,recuperation and redistribution processes that arenecessary to facilitate the re-use of a material orproduct. In this regard, national and localcircumstances must be taken into considerationwhen deciding upon the Best PracticableEnvironmental Option. However, a number ofavailable policy instruments have potential topromote more economically viable conditions forre-use of discarded materials where this representsthe Best Practicable Environmental Option. Theseare primarily -

• economic instruments which increase the cost ofprimary raw materials and waste disposal; and

• the introduction of specific producerresponsibility obligations.

It should be noted that work undertaken underthe National Waste Prevention Programme(Chapter 2) in relation to product design will alsocontribute to increasing the re-usability ofproducts and components contained in products.Similarly, measures undertaken in support ofincreased recycling (Chapter 5) will support widerre-use by ensuring that greater amounts ofmaterial are made available for recovery instead ofbeing sent for disposal.

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Beverage Percentage of Containers Percentage of Containers

Reused in EU Reused in Ireland

Mineral Water 41% (1997) 0%Soft Drinks 38.5% (1996 < 10%

Beer 60% (1997) 17%Milk 9% 0%Wine 27% 0%

4.2 Re-Use of Packaging Products

In principle, apart from a few exceptions, all goodsthat are delivered in primary one-way packagingcan technically be packaged in reusable packaging.The principal types of reusable packaging are glasscontainers, for example bottles and jars, as well aslarge volume metal and plastic transportpackaging such as pallets, barrels and crates. Rigidpackaging which also fulfils a secondary storagefunction while awaiting use at the consumer’spremises is the predominant reusable productstream. This type of usable packaging can be usedextensively for beverage products.

Regional products, characterised by distributionover short distances, are particularly well suited tore-use systems from both an economic andenvironmental perspective. Re-use packaging isestablished in more than 50% of the beveragemarkets in Europe, operating satisfactorily andresulting in a high economic and environmentalbenefit. However, technological development (e.g.new preservation techniques for milk) and thegrowth in non-carbonated beverage markets havefacilitated the use of an alternative lightweight,flexible one-way packaging for this range ofproducts. In addition, the high cost of property hasreduced the attractiveness of re-use systems thatrequire the provision of storage facilities withinretail outlets. Accordingly, traditional re-use systems have, for commercial reasons, beenabandoned for many beverages and are no longeravailable to consumers within Ireland.

The EU and Irish performance in relation to re-usepackaging for beverages is indicated in the Tablebelow.

There may be scope for improvement in the useof reusable containers (e.g. glass) in the Irishbeverage market. However, increased re-use canalso lead to environmental disbenefits caused bythe transport of significant additional weight andby additional transport and treatment requiredto facilitate re-use. Life Cycle Analysis is requiredto determine whether increased re-use in thissituation represents the Best PracticableEnvironmental Option.

The obligations arising from the implementationof the Packaging Directive, and other proposedinitiatives such as mandatory waste audits, willencourage business to reduce the amount ofpackaging which it places on the market.Mandatory re-use systems will be considered inappropriate circumstances in order to ensure thatthe requirements under the Packaging Directiveare fulfilled.

Fiscal measures, such as the 15 cent levy on plasticshopping bags, can also be effective. In this casethe levy reduces our dependence on disposableplastic shopping bags and encourages the reuseof bags.

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Source: Report on “Re-use of Primary Packaging” by Abfallberatung Müllvermeidung & Recycling for the European Commission (DG III) (2000)

4.3 Support for Initiatives at EU Level

One constraint on the use of policy instrumentsis that these should not restrict the movement ofgoods for trade in a free EU market, particularly inthe case of imports and exports, or unnecessarilyconstrain industry. Individual Member States aretherefore limited in the action which can be takento prevent certain products or packaging beingused.

At EU level, Ireland will support the developmentof specific obligations, Community-wide re-usetargets and measures in circumstances where there-use of certain discarded materials constitutesthe Best Practicable Environmental Option (BPEO)in Irish circumstances and is both appropriate anddesirable in waste management terms.

Product design can also facilitate re-use. The EUDirective on end-of–life vehicles will facilitate thedismantling sector in ensuring that cars canbe more easily dismantled and components reused.The requirement to allow end-of-life vehicles tobe taken back without cost to the final owner willalso assist in maximising re-use. Similar provisionsare contained in the proposed Directive on wasteelectronic and electrical equipment which will beadopted in 2002.

4.4 Re-Use of Non-PackagingProducts

The re-use of products other than packaging canbe less complicated as it is not always necessary toset up dedicated systems for collection,recuperation and redistribution. Basically, tosecure the re-use of such items, it is necessary to:

• Identify a source of commonly discarded reusableitems;

• Introduce arrangements efficiently to collect thetargeted items before they are consigned fordisposal; and

• Establish distribution organisations or retailoutlets that can succeed in transferring thecollected items (either free of charge or throughresale) to individuals that are willing to use themagain.

Useful items that are being discarded can bereadily sourced through the introduction of well-focused door to door collections or the wider availability of convenient ”drop off” centres. Civic amenity centres can also provide facilities for collecting goods which can be re-used.The materials can then be distributed throughcharitable organisations (e.g. St. Vincent de Paul)or alternatively sold at specialised retail outlets(e.g. Simon, Oxfam etc.). The success of these shopsdepends on the support which consumers give tothem.

Re-use can be encouraged through educating thepublic in relation to the range of products whichcan be re-used and also regarding the operationof those organisations which accept products forre-use and resale. Individual consumers canmaximise the re-use of materials in their daily livesby adopting a few simple techniques –

• use of a reusable shopping bag in preferenceto a disposable one;

• use of resealable containers for food inpreference to disposable wrappings;

• use of rechargeable batteries;

• servicing and repair of household equipment inpreference to the purchase of new equipment;and

• avoidance of the use of disposable products e.g.cups, plates, cutlery, razors, cameras etc.

The National Waste Management Board will beasked to advise on what practical measures canbe taken to encourage further the re-use ofnon-packaged products.

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4.5 Waste Exchanges andSwap Shops

Re-use can also be encouraged through the use of”waste exchanges” on the Internet. This is a virtualactivity where the material, quantity and locationof materials available for use are advertised on awebsite. This alerts people to the availability ofreusable items and facilitates the operation of themarket for recyclable materials. This is in additionto the well-developed specialised magazine andlocal newspaper sector which facilitates the re-saleof used products and goods.

A number of physical premises still remain (e.g.architectural salvage yards) where the public canpurchase discarded items for beneficial re-use.

A ”bring and buy” or a ”swap shop” is a premiseswhere people can both bring discarded goods tofacilitate beneficial re-use and purchase productsand goods for further use which have already beendiscarded by others.

Workshop facilities can also be provided at bothswap-shops and waste exchange premises toenable discarded products to be recuperatedfor future re-use.

A number of these waste exchanges exist and theiruse will be encouraged, for example,throughawareness campaigns, ENFO, environmentalawareness officers etc. Consideration will also begiven to providing support from the EnvironmentFund for viable swap shops.

4.6 Re-use of IT Equipment

A number of initiatives have been taken in variouscountries to refurbish redundant computers andother IT equipment for use by the voluntary sector,community groups and schools. The NationalWaste Management Board will be tasked todevelop guidance for public authorities andbusiness generally on how such initiatives canbe developed.

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Recycling involves the processingor treatment of a discarded wastematerial to make it suitable, inwhole or in part, for subsequentre-use.

There are three distinct types ofrecycling;

• mechanical or materialsrecycling, i.e. the reprocessingof waste without altering itschemical structure,

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The Challenge ofPromoting Recycling

Establishment of a RecyclingConsultative Forum

Funding for RecoveryInfrastructure

Source Separation andSegregated Collection

Supports for IncreasedRecycling

Diversion of Waste from Landfill

Market Development forRecyclables

Other Initiatives in Support of aBetter Recycling Performance

non-organic waste

• feedstock recycling (also knownas chemical recycling) of wasteplastic materials, whichinvolves altering the chemicalstructure of the materials; and

• biological treatment of organicmaterials (food and gardenwaste, paper), either bycomposting or technologies suchas anaerobic digestion.

Recycling has significantemployment potential andsupports the activities ofvoluntary and charitableorganisations, as well as theTravelling Community. It isestimated that up to 85% of allhousehold and commercial wastesare technically recyclable,although recycling performance isaffected by many factors whichimpact on the feasibility ofreaching such recycling rates, forexample contamination of waste.It is therefore estimated thatrecycling is restricted to 70% ofthe potentially recyclablematerials or 60% of the total wastestreams.

The use of certain recycledmaterials in production processescan achieve significant energysavings. This is especially the casewith glass, steel, aluminium andPET plastic. Recycling is thepreferred waste managementoption after prevention and re-use,since it recognises and exploits theresource value of waste.

Key Actions The Government will-

• establish and support aRecycling Consultative Forum,operating under the aegis of theNational Waste ManagementBoard, to act as a consultativeand advisory body on allaspects of recycling;

• provide €127 million inEU/Exchequer support forwaste recovery infrastructure,including recyclinginfrastructure, in the period2002 – 2006;

• introduce a landfill levy in 2002and begin implementingnational bans on landfillingspecific materials;

• utilise revenues from the newplastic bag and landfill levies,through the Environment Fund(provided for under the WasteManagement (Amendment) Act2001) to assist waste recyclingactivities;

• in addition, provide €635, 000seed funding for theestablishment in 2002 of aMarket DevelopmentProgramme under the aegis ofthe National WasteManagement Board which willidentify and promote marketsfor recyclable material;

• under the direction of theNorth/South MinisterialCouncil co-operate with the

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Department of the Environmentin Northern Ireland on thedevelopment of an all-islandapproach to developing marketsfor recyclable material;

• exempt from planningpermission, subject toconditions, the provision ofbring banks;

• through Enterprise Irelandprovide support fordevelopment of indigenousreprocessing industry.

5.1 The Challenge of PromotingRecycling

Four key areas have to be addressed if Ireland’srecycling performance is to be radically improved –

• better separation and sorting of waste at source,allied to segregated collection, to providecleaner waste fractions and single material wastestreams;

• provision of an adequate infrastructure for thecollection and management of waste arisings;

• greater reprocessing capacity to convert wasteinto usable products or raw materials; and

• generation of markets and improved demand forrecycled or recyclable materials, especially in themanufacturing and construction sectors.

Successful recycling of waste materials generallyinvolves the development of a system thatincorporates –

• the promotion of producer/consumer awarenessso that the recycling of a discarded material isclearly recognised as preferable to disposal andthat every reasonable effort is made to have itrecycled;

• the education/training of producers/consumers tosecure introduction of discarded material intothe recycling system chain at the mostconvenient point and in the most appropriateform;

• collection of the recyclable materials (e.g.factory, supermarket, restaurant, household) asfar as possible segregated at source;

• where necessary, sorting and separation (i.e.segregation) of co-mingled recyclables intoindividual recyclable material fractions;

• pre-treatment of recyclable materials (e.g. balingof cans, crushing of glass) into the form ofmarketable commodities for a manufacturingprocess;

• reprocessing of the recyclable materials(recyclate) into new product; and

• securing markets, and marketing themanufactured products.

Sustained commitment is required by public serviceagencies, waste services’ industry, industrialcommercial enterprises and domestic consumers toincorporate recycling practices into daily routineactivities.

Failure or inefficiency in any of the abovecomponent activities mean that successful oreffective materials recycling may be compromised.

Further details on recycling methodologies arecontained in Appendix II.

5.2 Establishment of a RecyclingConsultative Forum

A Recycling Consultative Forum will be establishedunder the aegis of the National WasteManagement Board to support the overallfunctions of the Board while providing a particularfocus on recycling. The Recycling Forum will bebroadly based and will include representatives ofpractitioners, regulators and NGOs.

Some of the more significant functions of theRecycling Consultative Forum will be to -

• prioritise the implementation of actions thathave the potential to stimulate and encouragerecycling - but are not yet being undertaken;

• provide policy advice on all aspects of recycling;

• investigate difficulties and constraints whichexist in the recycling system and makerecommendations on how these problems canbest be overcome;

• co-ordinate and support the work of localauthority environmental officers.

The Recycling Forum will be serviced by theNational Waste Management Board.

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5.3 Funding for RecoveryInfrastructure

5.3.1 Assistance under the NationalDevelopment Plan

The National Development Plan (NDP) anticipatessome €825.5 million of capital investment in wastemanagement in the period to 2006. The bulk ofthis investment will be in waste recovery facilitiesprovided for in the regional waste managementplans. Major infrastructural requirements underthe NDP can best be addressed through theestablishment of public private partnerships (PPP)delivering integrated regional solutions, and it isanticipated that at least €571.5 million ofinvestment would be forthcoming under PPParrangements. Additionally, local authorities willdirectly provide, or arrange for the provision of,supporting waste collection and managementinfrastructure.

Within this overall context, EU/Exchequer financeof some €127 million will be available under theNDP to support the provision of waste recoveryinfrastructure. Financial support will be madeavailable towards -

• the capital cost of recycling infrastructure, forinstance civic amenity sites, transfer stations, andbiological treatment and materials recoveryfacilities, as provided for in regional plans; and

• the planning/procurement costs associated withthe delivery of major regional infrastructure.

Up to €88.9 million will be made available inrespect of recycling infrastructure over the periodof the plan, with €38.1 million provided to supportlocal authorities in the planning and procurementof major public private partnership projects.

5.3.2 Environment FundRevenues generated from the levies on the landfillof waste (see paragraph 5.6.2) and plasticshopping bags will be assigned to a centralEnvironment Fund in support of appropriate wastemanagement and environmental protectioninitiatives which could not previously beundertaken because of resource limitations. TheFund will facilitate the implementation of a rangeof initiatives in support of waste recycling,including -

• market development initiatives;

• support for waste recycling infrastructure (not

otherwise supported under the NDP); and

• incentivisation of recycling performance by localauthorities;

• research and development includingdemonstration projects;

• education and awareness raising, and publicinformation etc.

Revenues from both levies may be expected todecline significantly over time as alternatives tosingle use plastic shopping bags are utilised and arange of policy initiatives substantially diminish thevolumes of waste consigned to landfill.Environmental levies may however be extended toarticles other than plastic bags, by way ofprovisional order made by the Minister for theEnvironment and Local Government and subject toconfirmation by an Act of the Oireachtas. Thedesirability of extending environmental levies tofurther articles will be kept under review.

5.4 Source separation andsegregated collection

Regional waste management plans generallyprovide for the development of segregatedhousehold waste collection services in all majorurban areas. Householders will be required tosegregate their waste into a number of distincttypes of material waste. Initially, this will involvethe segregation of specified dry recyclables andresidual waste (i.e. non dry recyclables) in separatereceptacles. When biological treatment facilitiesare available, biodegradable kitchen and gardenwaste will also be segregated and separatelycollected. Further source separation requirements(e.g. in relation to household hazardous wastes)may also arise in the longer term.

As indicated in Chapter 3, large-scale segregatedcollection services have already been launched in anumber of areas. The collection service in theDublin region is initially focusing on segregatedcollection of newsprint, cardboard packaging andcans (waste glass is not collected under thesesystems because of the risk of contamination ofother materials by broken glass).

Local authorities should also avail of existing bye-law powers under the Waste Management Act1996 to require commercial businesses to segregatewaste at source, to facilitate subsequent recovery.

Under the permitting system for commercial wastecollectors, authorities now have power to require

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permitted commercial collectors to introduce andoperate segregated collection services forhouseholders and commercial outlets. Thesepowers should be used in support of segregatedcollection schemes, as the requisite handling andtreatment facilities become available.

As part of its commitment to recover packagingwaste, Repak will provide an element of financialsupport for the development of segregatedhousehold collection services (see Chapter 6) inaddition to its support of segregated collectionfrom the commercial sector.

5.5 Supports for IncreasedRecycling

5.5.1 Extending the ”bring” networkRegional waste management plans provide for theextension and upgrading of the ”bring bank”networks, especially in rural areas that will not beserved by segregated household collectionschemes. In particular this will assist in maximisingthe recovery of glass. An increase in glass recyclingis the most cost effective way to increase ouroverall recovery rate for packaging waste, due tohigh weight to volume ratio and the availability ofreprocessing capacity both here and in NorthernIreland. (Additional capacity to produce cullet isalso required to support the existing reprocessingcapacity). Accordingly, it is important to buildupon the progress achieved over the past numberof years and improve the density of bring banks assoon as possible. Typically, a target density of onebank for every 500 to 1,000 households isintended, which would bring Ireland much closerto European norms than is currently the case.

Under the Planning and Development Act 2000, aplanning authority may include, as a condition ofa planning permission, requirements in respect ofthe provision of facilities for the collection andstorage of recyclables. Planning authorities shouldroutinely consider the scope for exercise of suchpowers, to facilitate the provision of bring bankswhen deciding on proposed developments such asshopping or service stations, as well as housing,and other developments.

To facilitate the rapid development of the bringbank network, the provision of such bring bankswill be exempted from the requirement to obtainplanning permission. This exemption is being madesubject to certain siting and size restrictions toavoid the creation of nuisance.

5.5.2 Support for Recycling BusinessThe increased availability of recyclable materialsfor reprocessing, as regional waste managementplans are implemented, will represent a clearbusiness opportunity and encourage thedevelopment by industry of additionalreprocessing facilities and capacity. Reprocessingactivities that convert recyclable materials into newproducts or materials are equivalent to any othersector of manufacturing industry. EnterpriseIreland provides a range of financial and technicalsupports for indigenous manufacturing industryand will provide equivalent assistance for thedevelopment of indigenous reprocessing activities.

5.5.3 Grant scheme for small scale recycling projectsCertain thresholds apply before activities areeligible for support from Enterprise Ireland. Small-scale projects or proposals may also emerge which,directly or indirectly, have the potential tocontribute to an improved recycling performance,but which require seed funding or generalfinancial support. A grant scheme for such smallscale recycling initiatives will be set up during2002, with the advice of the Recycling Forum, andfinanced from the Environment Fund.

5.6 Diversion of wastefrom landfill

5.6.1 User Based waste chargesWaste charges levied by local authorities have notin the past reflected the full economic costs of thewaste management services provided. Mosthouseholds are now required to pay wastecharges, and these are increasingly reflecting theeconomic cost of the provision of those services.Waste charges levied on commercial interests have increased significantly in recent times and

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HouseholdCommercialConstructionIndustrialOthers

Summary of Major Waste TypesLandfilled in Ireland in 1998

6.4%

12.8%5.6%

30.8%

44.4%

weighing of commercial waste presented byindividual producers is now increasingly commonamong waste contractors.

As a matter of equity, and to directly incentivisewaste prevention/minimisation and recycling, thelevel of waste charges imposed on households andbusinesses, either directly or through gate fees,should be based on usage. Accordingly, theGovernment expects that all local authorities willmove towards introducing weight/volume relatedcharging to the fullest extent possible within thenext three years. This is in addition to the landfilllevy which has been provided for under the WasteManagement (Amendment) Act, 2001 and whichwill be introduced in 2002.

Research is underway on ”The effects of weight-based charges for solid waste disposal” as anintegral part of the Environmental Research,Technological Development and Innovation (RTDI)Programme (2000 – 2006). The outputs from thisresearch project will add significantly to theinformation available on the subject and willimprove the knowledge base in relation to thepotential impact of weight related charges on Irishwaste management practice.

5.6.2 Introduction of a Landfill LevyThe Government will apply a levy in respect of the landfill of specified wastes, to be introducedwith effect from early 2002. This has beenprovided for in the Waste Management(Amendment) Act 2001.

Making the landfill disposal of waste moreexpensive will -

• incentivise the diversion of waste from landfill,especially towards options which are higher inthe waste hierarchy;

• help offset the differential between the cost ofwaste disposal and of waste recovery, inparticular materials recycling;

• encourage waste reduction measures by businessand the general public;

• help internalise the external environmental costsof landfill; and

• generate revenues that can be applied insupport of waste minimisation, recycling andother desirable waste management, awarenessand enforcement initiatives.

It is intended that this levy will be payable by alllandfill operators (local authority and private) andcollected by local authorities, in accordance with

new regulatory requirements. Consultants wereappointed to review practice in EU Member Statesregarding landfill taxes, consider issues relevant tothe design of the proposed levy – in particularissues such as its scope, levels or rates, exemptions,timing and use of revenues – and to makerecommendations regarding its design,implementation and review.

Based on their findings and recommendations,clear and transparent proposals for theimplementation of this levy have been published.It is intended to provide a framework of certainty,which will allow necessary investments ininfrastructure to take place against a backgroundof clear guidance on the introduction, rates ofescalation of, and final levels of, the proposed levy.

5.6.3 Restrictions on access to landfillA significant number of local authorities haveshort-term problems with landfill capacity. In anumber of cases local authorities have decided toban or restrict the landfilling of commercial wasteto conserve capacity and extend the life of landfillfacilities. This has provided an impetus for a morefocused effort on the part of commercial wasteproducers and private sector collectors to recyclesuch waste.

In view of the current constraints, the Governmentexpects local authorities, especially thosecommitted to the joint implementation of regionalwaste management plans, to co-operate as far aspossible in utilising existing capacity. In introducingrestrictions on landfill access, local authoritiesshould closely consult at an early stage withcommercial interests in the areas affected, in orderto secure mutual agreement on the orderlyintroduction of alternative arrangements.

Regional Waste Management Plans recommend aprohibition on the landfill of specific fractions ofwaste in appropriate circumstances (e.g. glass,paper, aluminium, construction/demolition waste,etc.) so as to develop and maintain a demand forthe recycling of these materials. Such bans will alsoconserve landfill capacity.

To the extent that they operate landfills, localauthorities will be in a position to institute suchrestrictions on a local level, as circumstancespermit. However, alongside the provision ofrecycling infrastructure under the wastemanagement plans, the Government will beginintroducing national bans on landfilling of specificmaterials, utilising new powers provided under theWaste Management (Amendment) Act 2001.

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5.7 Market Development forRecyclables5.7.1 End Markets for RecyclablesThe significant cost and effort associated with thesegregation, collection, sorting, pre-treatment andreprocessing of recyclable materials demands thatmarkets be developed to realise the full resourcevalue of all recyclable material that is reclaimed.The market ultimately dictates the manner inwhich a material must be processed, which in turndetermines the method by which the materialmust be collected and presented by producers andconsumers. End markets for recyclables thereforeplay a fundamental role in the design of anintegrated recycling system.

One of the main barriers to an improved andsustainable recycling performance is the lack ofstable and economically attractive markets andoutlets for recyclable materials. Market demand inIreland is susceptible to instability and pricevolatility arising from developments in widerEuropean and World markets. When demand forrecyclate is high, prices for materials can riserapidly to very attractive levels, but reduceddemand, caused for instance by global economic ormarket developments, can lead equally rapidly to avery significant collapse in prices. This instability isan impediment to long term investment in thedevelopment of the reprocessing industry.

While improved waste collection services andinfrastructure will ensure the availability ofsignificant volumes of good quality recyclate fromhouseholds and commercial enterprises, thisgreater availability does not necessarily mean thatthe materials collected can be recycled or put tosome beneficial use in the absence of markets forthe material.

It is important that every reasonable effort is madeto incorporate recycled material into new products.Items in common use that can be successfullymanufactured with a significant content ofrecyclate include glass beverage containers, paper,plastic and safety matting in leisure centres, streetfurniture etc.. Recycled materials generally shouldnot cost more than goods manufactured fromvirgin materials. However, for some recycledproducts, the lack of economies of scale associatedwith large volume turnover can result in higherprices being charged to consumers. This is why it isimportant for consumers to establish a demand forrecycled products and thereby help reduce the unitcosts involved.

Though there is scope for further developing thecapacity of the traditional reprocessing sector, itwill be necessary to develop new and innovativeapplications for recyclate, which will complementexisting outlets. This can best be achieved byworking closely with indigenous industry,especially in the SME sector, to –

• fully exploit the inherent properties andcharacteristics of recyclable materials;

• identify new and diverse uses and applications;and

• facilitate implementation of new applicationsthrough applied research, technical and advisorysupport, and the development of appropriatestandards and procedures.

5.7.2 Market Development ProgrammeTo progress development of new markets forrecyclables, a Market Development Group will beset up under the aegis of the National WasteManagement Board to drive a new MarketDevelopment Programme. The MarketDevelopment Group will be a focused groupcomprising representatives from the EPA,Enterprise Ireland, the National StandardsAuthority of Ireland and representatives ofbusiness and industry interests, as well as theDepartments of the Environment and LocalGovernment and Enterprise, Trade andEmployment.

The National Waste Management Board willprovide strategic direction for the operation of the Group.

5.7.3 Key Tasks of Market Development GroupThe Market Development Programme will initiallyfocus on those materials and markets which arelikely to yield early and substantial success. It willaim at identifying new applications and marketsfor recyclables and secondary recycled products.The Group will also be asked to identify barriers tothe use and marketing of recyclable material andto make recommendations to address these.

Enterprise Ireland, as a key member of the MarketDevelopment Group, will be specifically tasked toassign assistance to those areas identified by theGroup as being of most potential.

The National Standards Authority of Ireland,another key member, will be tasked to developstandards and guidance on the use of secondaryraw materials in design and manufacture.

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The Market Development Group will build uponthe research work already being carried out by theClean Technology Centre in Cork which has beencommissioned by the EPA to –

• assess and evaluate existing and potentialmarkets for materials that can be recovered frommunicipal waste;

• assess instruments and tools to develop newmarkets and outlets; and

• prepare a strategic approach for suchdevelopment.

In support of its key tasks, the MarketDevelopment Group will also carry out thefollowing specific functions:

• evaluation of international research in relationto market development, and identification ofresearch gaps from an Irish perspective;

• financing and commissioning Research &Development and Demonstration Projects inrelation to remanufacturing and markets forrecyclables, and dissemination of results;

• development of best practice guides for businessand industry;

• provision of technical, engineering and financialadvice and assistance to industry to facilitatenew and innovative uses for recyclate, includingthrough voluntary recycled content agreements;

• evaluation of ongoing EPA projects on outletsfor recycled materials and compost frommunicipal waste;

• evaluation of the potential for the adoption oftargets for minimum recycled contents in locallymanufactured products, in co-operation with therelevant organisations;

• identification of specific requirements necessaryto facilitate the extensive implementation of”green procurement” procedures in the publicand private sectors;

• development of Waste Exchanges to stimulate ademand for discarded materials that have thepotential to be recycled for beneficial re-use.

Seed funding of €0.635 million will be provided in2002 to support this initiative.

5.7.4 North/South and East/West synergies Similar initiatives in relation to MarketDevelopment are underway or are beingdeveloped in Northern Ireland and Great Britain.

A Waste and Resources Action Programme (WRAP)has been established for England and Wales, toovercome market barriers to promoting re-use andrecycling.

In Scotland, the REMADE (Recycling and MarketDevelopment) Scotland Project - a partnershipbetween the public and private sectors - has beenset up to strengthen, stimulate and developrecyclate material markets. The objectives of theprogramme are to:

• recycle substantial additional waste materialthat arises within Scotland;

• generate opportunities for indigenousemployment; and

• stimulate the development of additionalrecycling infrastructure.

The initial priority will be devoted to glass, non-glossy paper and wood and plastics. Biodegradablewaste, glossy papers and plastics are more mediumterm priorities.

The Northern Ireland Waste Management Strategyproposes a Market Development Programme tostimulate local demand for recycled materials bypromoting uptake of products, developingspecifications and exercising the purchasing powerof Government and local authorities.

Co-operation on an all-island basis in relation toMarket Development would create greatereconomies of scale. To this end the North/SouthMinisterial Council has agreed a co-operativeapproach to develop a market for the use ofrecyclates for the island and work will be takenforward on developing a structured approach tomarket development on an all-island basis.

5.8 Other initiatives in support ofa better recycling performance5.8.1 Community Initiatives Individuals and communities have an importantrole to play in avoiding over-packaged productsand in purchasing recyclable and recycled products.Where relevant facilities are provided, they alsoplay a crucial role in segregating discardedmaterials at source and directing these materials tothe most appropriate re-use or recycling facility.

In implementing the waste management plans,local authorities should give priority to building

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on the widespread good will which exists amongcommunities to actively contribute to a betterrecycling performance. The plans specifically tasklocal authority environment awareness officerswith this role.

Local authorities can also assist communities indeveloping local projects. This can be done interms of the provision of finance, facilities andadvice. The Environment Fund will support‘partnership projects’ between local authoritiesand local organisations/communities towards thedevelopment of good quality local projects.

The Northern Ireland Waste to ResourcesPartnership (WaRP) and Earthwatch in Ireland havedeveloped preliminary proposals to establish an all-island Community Recycling Network. EnvironmentMinisters, North and South, through theNorth/South Ministerial Council have asked thatdetailed proposals be developed in this regard.This initiative will be pursued through theNorth/South Ministerial Council.

5.8.2 Recycling in the Travelling CommunityThe Report of the Task Force on the TravellingCommunity recommended that WasteManagement Policy and Legislation should beadapted to take account of the traditionalapproach to recycling adopted by the TravellingCommunity. In particular, the Task Forcerecommended that priority should be given to thetargeting of recycling initiatives through which theskills of the Travelling Community could make asignificant contribution to the fulfilment ofnational objectives. The Task Force also raisedissues concerning the necessity for consultation atnational and local levels regarding the various newwaste management regimes which are beingintroduced.

There is, therefore, considerable potential for theTravelling Community to contribute to the nationalrecycling effort. The establishment of theEnvironment Fund, in particular, will present anopportunity for that Community to come forwardwith sustainable projects which both benefit theenvironment and provide potential sources of newemployment.

There is no doubt but that developments in thearea of waste management present both achallenge to, and an opportunity for, the TravellingCommunity. On the one hand Ireland is obliged tointroduce higher safety and environmentalstandards of operation for local authority waste

management facilities (for example, landfill sites)and for private facilities (for example, cardismantler premises). These measures could impacton some traditional Traveller activities. On theother hand increased recycling of a wider range ofmaterials in future years will provide anopportunity for the Travelling Community to applytheir knowledge, industry and expertise in relationto recycling. To gain from these benefits, theTravelling Community must make seriousendeavours to enter into the mainstream ofrecycling activity and to formally register and co-operate with local authorities.

In recognition of the role of the TravellingCommunity in the recycling sector a representativeof the Travelling Community will be appointed tothe Recycling Consultative Forum.

5.8.3 Establishment of performance indicatorsPerformance indicators have a role in measuringhow local authorities are succeeding intransforming their waste management policies andpractices. While local authorities are not in aposition directly to control all aspects of wasteactivity, they can exert considerable influence,directly and indirectly, over the pace and extent ofdevelopments. Appropriate indicators on the stateof current practice would provide usefulinformation for making decisions on investmentand grant aid and in identifying areas requiringongoing management and service development.

Certain overall performance targets are known,insofar as national recycling targets are set out inChanging Our Ways, which in turn are reflected inthe local and regional waste management plans.The Department of the Environment and LocalGovernment has already asked local authorities toreport on a number of performance indicators inrelation to the services that they deliver to thecommunity. In regard to waste management theindicators should, as an absolute minimum relateto the provision of bring facilities. Thedevelopment of performance indicators will alsofeed into the ongoing development of theNational Waste Database, operated by the EPA,and which is an essential tool in measuringIreland’s waste management performancegenerally and in regard to the attainment oftargets laid down at EU level.

The National Waste Management Board will beasked to recommend how performance indicatorsin the waste management area should best bedeveloped and extended. Some of the more

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significant performance indicators recommendedin the 1998 National Waste Database include thefollowing –

• number of households receiving collectionservices;

• amount of household waste collected,per capita, per annum;

• percentage recycled, of the various wastestreams;

• percentage of the various waste streamsbiologically treated;

• percentage otherwise recovered;

• percentage landfilled;

• cost of waste collection per household;

• cost of municipal waste disposal, per tonne;

• number of ”bring facilities” relative topopulation;

• percentage of population served by segregatedcollection services or in convenient proximity to”bring facilities”;

• enforcement performance; and

• public satisfaction ratings.

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The Producer Responsibilityconcept recognises that theproducers of goods and materialsneed to take responsibility forthe environmental impact ofplacing goods and services onthe market.

Key ActionsThe Government will, in co-operation with business-

• put in place measures tosupport Ireland’s attainmentof 50% recovery of packagingwaste by 2005, (includingdedicated arrangements forspecific materials such as PETand used beverage cartons);

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Sectoral Initiatives

responsibility

• carry out a comprehensivereview of the WasteManagement (Packaging)Regulations, 1997;

• put in place measures to ensurethat end-of-life vehicles andwaste electrical and electronicequipment are recovered andrecycled in accordance with, andwithin the timescales set out inthe relevant EU Directives;

• put in place an effective systemto ensure that the recyclingtargets for Construction andDemolition Waste, of 50% by2003 and 85% by 2013, are metby the construction industry;

• establish producerresponsibility initiatives in2002 to recycle newsprint,tyres and batteries;

• where necessary, requireproblematic sectors to introducewaste recovery schemes usingpowers under the WasteManagement Acts;

• ensure an effective enforcementregime for Regulations madeunder the Waste ManagementActs in support of producerresponsibility initiatives;

• establish a ProducerResponsibility Unit within theEPA to carry out research,monitor performance underspecific producer responsibilityinitiatives, secure betterenforcement and promotegood practice.

6.1 Polluter Pays Principle

The polluter pays is a fundamental principle ofenvironmental protection: waste generators shouldpay the full costs of waste management servicesprovided including collection, treatment anddisposal. Responsibility for the costs of wastemanagement focuses attention on the implicationsof waste generation and also provides a directeconomic incentive for waste prevention.Application of the principle also ensures that thewaste management costs arising during the life ofa product are internalised in the price charged toconsumers. Such costs can be minimised wherematerials and products are managed in anenvironmentally effective manner throughout theirlife cycle. Producers, in particular have considerablescope to reduce waste arisings and the amount ofdiscarded material that is sent for disposal e.g.through the development of products utilisingrecycled materials, products which are recyclable orcontain recyclable components, or products usingless packaging.

The producer responsibility approach to theenvironmental management of products forms thebasis of a number of EU Directives, both in forceand to come into force in the coming years.Integrated Product Policy (IPP) implies a morecomprehensive approach to environmentalperformance of products taking a life cycle (cradle-to-cradle) perspective and focusing on improvingenvironmental performance in the most costeffective way. It offers both environmental andeconomic benefits.

Improving the environmental management ofgoods and products involves a number of differentelements, including:

• reducing wastage and energy use in themanufacturing process, with resultantefficiencies for business;

• reducing the environmental threat fromproducts by avoiding, reducing or ceasing theuse of hazardous substances or processes inmanufacturing, e.g. eliminating the use of heavymetals such as cadmium;

• establishing efficient systems for the collection ofproducts at the end of their useful life; and

• putting in place effective recycling systems forthose products which have been collected.

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6.1.1 Legislating for Producer ResponsibilityThe Waste Management Act 1996 delivered on thecommitments in Recycling for Ireland (1994)to provide a legislative basis for producerresponsibility initiatives. This element of the Actis an increasingly important instrument in Ireland’swaste management policies, facilitatingimplementation of EU and national initiativesas set out below.

6.1.2 Producer Responsibility InitiativesProducer responsibility initiatives allow producersto devise schemes that have the capacity to fulfilthe basic objectives of waste managementlegislation without resort to a ”command andcontrol” approach. In effect, producers develop aCompliance Scheme to meet general objectiveswhich would otherwise be imposed by regulation.Compliance Schemes enable business to use itsexpertise to devise workable, effective and least-cost arrangements that are sensitive both tocommercial and environmental requirements. Theyalso have the advantage of promoting a pro-activeattitude by business and facilitating an acceleratedand smoother achievement of objectives.

Producer responsibility initiatives, which are welldesigned and properly monitored are thepreferred choice of the Government. In theabsence of a responsive approach by business,mandatory producer responsibility obligations willbe applied under the Waste Management Act 1996in respect of appropriate products.

Producer responsibility initiatives must beunderpinned by legal obligations so that individualbusinesses which may opt out of a scheme cannotopt out of their obligations, or the costs associatedwith those obligations. The existing complianceschemes in Ireland, dealing with packaging wasteand farm plastics, are supported by regulationsmade under the 1996 Act.

There are many forms of producer responsibilityagreement and typical models can vary in rangebetween:

• a commitment (where participation is not madea legal requirement) to meet specified targets inresponse to Government policy. In thesesituations, industry generally sets its ownimplementation programme and agrees toundertake appropriate monitoring, auditing andreporting of performance. Such industry pledgesmay be exchanged for corresponding benefitsfrom Government including technical support,financial incentives or exemptions from specific

mandatory requirements, and

• a legally binding negotiated agreement whichstipulates unambiguous commitments and clearlystated time schedules for all participating parties.The term ”negotiated agreement” is commonlyapplied to agreements that are legally binding.

In practice, the success of producer responsibilityagreements is highly dependent on the effectiverepresentation and participation of key industrystakeholders in the negotiation andimplementation process.

Transparency of agreements between Governmentand business is also an issue, and the EuropeanCommission has issued general guidelines2 in thisregard. In addition, recent EU Directive proposalsincreasingly provide that voluntary agreementsbetween competent authorities and the relevanteconomic sectors should meet certain basic criteria.These typically include the following:

• agreements should be enforceable;

• agreements need to specify objectives withcorresponding deadlines;

• agreements should be published in officialdocuments accessible to the public;

• provision should be made to examine progressreached under the agreement; and

• in the case of non-compliance with theagreement, relevant Directive provisions shouldbe implemented by legislative, regulatory oradministrative measures.

6.2 Enforcement

Effective enforcement of regulatory requirementsis essential to the success of producer responsibilityinitiatives, irrespective of whether they compriseindustry commitments or legally bindingnegotiated agreements. Compliance schemesrequire members to contribute financially tosupport the scheme. Such support is underminedwhere self-complying producers, outside a scheme,are able to evade their responsibilities throughpoor – or no - enforcement of regulations. ”Freeriders” also increase the costs for members of thecompliance scheme. The Government is thereforecommitted to putting in place an effective regimeto ensure that producer responsibility initiativesare backed up by effective enforcement.

To intensify enforcement of the PackagingRegulations, a network of enforcement officers,

412 Communication, COM (96) 561 final

co-ordinated by the Department of theEnvironment and Local Government, has beenestablished in the three Dublin County Councilsand the five City Councils. The network facilitatesthe sharing of experience and also serves tosupport and encourage the development of anenforcement culture. This network will ensure thata systematic approach is taken by the localauthorities involved. The network will beexpanded to include all local authorities by theend of 2002.

Producer responsibility initiatives are a relativelyrecent development in Ireland – first introduced in1997 for packaging waste and farm plastics.Valuable lessons have been learned from theexperience gained in these initial years; revisedFarm Plastics Regulations were made in July, 2001and the Packaging Regulations 1997 are also underreview. In light of experience a strong regulatoryregime will underpin all further producerresponsibility schemes.

6.3 Producer ResponsibilityUnit in EPA

The Government will establish a Unit within theEPA to co-ordinate and secure better enforcementof producer responsibility initiatives. This unit willbuild on the Packaging Regulations enforcementnetwork which has already been established by theDepartment of the Environment and LocalGovernment (paragraph 6.2 above). While betterenforcement will be its primary function, the Unitwill also have a specific brief covering informationcollection and reporting, research, provision ofguidance and assistance and promotion of bestpractice. It will build national expertise in the areaof producer responsibility and its work willcomplement the work of the Core PreventionTeam (see paragraph 2.3.1). The ProducerResponsibility Unit will be tasked with identifyingsuitable waste streams/materials for futureproducer responsibility initiatives.

6.4 Sectoral Initiatives

6.4.1 Packaging and Packaging WasteDirective 94/62/EC on Packaging and PackagingWaste required return, collection and recoverysystems for used packaging and packaging wasteto be put in place to provide for reuse or recycling.Packaging is broadly defined, ranging fromwooden crates, pallets and cardboard boxes usedto package commercial goods to glass and plastic

bottles, aluminium and steel cans and paper andboard packaging which wrap everyday consumerfoodstuffs and other products.

Under the Directive the followingtargets were set for Ireland:

30 June 2001: 25% recovery (minimum),

31 December 2005: Between 50% to 65% recovery and 25% to45% recycling (including a minimum of 15% ofeach individualpackaging material).

The Directive is being revised, and substantiallyincreased recycling and recovery targets are likelyto be set for the period beyond 2005.

The Waste Management (Packaging) Regulations1997 require all producers of packaging waste totake certain steps to recover packaging waste.Particular obligations are imposed on ‘majorproducers’ i.e. businesses with an annual turnover

in excess of €1.27 million and placing more than25 tonnes of packaging on the Irish market. MajorProducers may themselves comply with theirobligations under the Regulations (self-compliance)or may secure an exemption from the Regulationsby becoming a member of an approvedcompliance scheme.

RepakRepak Ltd., established by Irish industry in 1997 asa compliance scheme to support the attainment ofIreland’s packaging waste recovery targets, is theonly approved compliance scheme in the State forpackaging waste. The members pay a fee based onthe material-specific tonnage of packaging wastewhich they place on the market and must alsoparticipate in the compliance scheme in asatisfactory manner.

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In its role as a compliance scheme, Repak Ltd. nowsupports -

• the expanding network of ”bring facilities” forglass and metals from the domestic sector;

• the ongoing roll-out of household segregationand separate collection systems in urban centresincluding Dublin, Nenagh and Galway; and

• the recovery of packaging waste from thecommercial/industrial sector through theoperation of the Repak Payment Subsidy (RPS)scheme.

(Under the RPS scheme, a subsidy is available fromREPAK to independent waste contractorsthroughout Ireland for every tonne of packagingwaste they collect and send for recycling. The aimis to maintain additional packaging wastecollection on an economic footing even when thecurrent market value of packaging materials isinsufficient to cover costs.)

The 1998 National Waste Database Report,published by the EPA in February 2000, estimatedpackaging waste arisings at over 680,000 tonnes (aconsiderable increase on the 1995 figure,attributable to more robust data as well asincreased economic activity). Total packagingwaste recycled was estimated at just over 100,000tonnes in 1998, a recovery rate of 14.8%. RepakLtd. reported that members recycled 114,000tonnes and 146,000 tonnes of packaging waste in1999 and 2000 respectively. The Directive’s targetof 25% recovery by 30 June 2001, amounting toaround 200,000 tonnes, will have been achieved in2001.

Now that Ireland has met the 2001 target,momentum must be maintained and attentionmust immediately turn to meeting the 50%recovery target for 2005. Repak is putting in placea 5 Year Strategy to meet its obligations. This willrequire positive business support. Steps are alsobeing taken to ensure that effective enforcementarrangements prevent ”free riders” evading theirobligations. A task force has been established toreview, and recommend measures to strengthenthe 1997 Waste Packaging Regulations.

In meeting the waste packaging recovery targetsto date, particular reliance has been placed onrecovery from the commercial sector (around 80%).To reach the 2005 targets greater emphasis willhave to be placed on recovery from the domesticwaste stream. It is anticipated that as much as 40%

of the packaging waste will need to be recoveredfrom the domestic waste stream by this time.Specific materials such as PET bottles (for plasticsoft drinks) and Tetra Pak containers will betargeted with support from Repak and localauthorities for additional recovery/recyclinginitiatives.

6.4.2 Farm PlasticSince 1997, Irish Farm Film Plastics Group (IFFPG)has operated a successful scheme to recover farmplastics i.e. bale wrap etc. As with the generalpackaging waste scheme operated by Repak, thisvoluntary compliance scheme is backed byRegulations made under the Waste ManagementAct 1996.3 Under the regulations, manufacturers,importers and suppliers are required to participatein a waste collection and recovery schemeoperated by an approved body, and funded by alevy on the sale of farm plastic, or alternatively totake steps individually to collect and recover farmplastic waste which they have placed on themarket, to be funded by the operation of adeposit-and-refund scheme.

The IFFPG, to which virtually all manufacturers andimporters in the Irish market have been affiliated,is the sole approved body under the regulations. Itrecovered around 6,000 tonnes of waste farmplastic in 2000, i.e 40-45% of the amount of farmplastic placed on the market during that year.

The Department of the Environment and LocalGovernment substantially strengthened the FarmPlastics Regulations in 2001, and will continue tokeep the operation of this scheme under review.

6.4.3 End-of-Life VehiclesThe Directive on End of Life Vehicles (ELVs) contains measures, applicable from 21 April 2002, is aimed at:

• preventing waste from vehicles;

• minimising the use of hazardous substances invehicles, including restricting the use of certainspecified substances;

• collecting and treating ELVs in an environmentallysound manner;

• meeting recovery and recycling targets of 85%reuse/recovery and 80% reuse/recycling by 2006,increasing to 95% reuse/recovery and 85%reuse/recycling by 2015;

• ensuring that the delivery of the ELV to an

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3 The Waste Management (Farm Plastics) Regulations 1997 (S.I. No 315 of 1997) were replaced by the Waste Management(Farm Plastics) Regulations 2001 (S.I. No 341 of 2001)

authorised treatment facility occurs without anycost for the last holder/owner and ensuring thatthe producers (including professional importers)meet all, or a significant part, of the costs of theimplementation of these measures from

1 July 2002 for vehicles put on the market as from that date, and

1 January 2007 for vehicles put on the market before 1 July 2002.

In addition, the Directive requires that Certificatesof Destruction are issued to the last owner of avehicle and that those who dismantle vehicles areproperly licensed and maintain premises to anenvironmentally by acceptable standard. This lastelement will require major upgrading of cardismantler premises in Ireland.

The Department of the Environment and LocalGovernment has been in dialogue with the varioussectors in the motor industry with a view toestablishing a producer responsibility initiative. It is intended that all aspects of the Directive willbe addressed by the transposition date of 21 April, 2002.

6.4.4 Waste from Electrical and Electronic Equipment Directives on waste from electrical and electronicequipment (WEEE) and on the restriction on the useof certain hazardous substances in electrical andelectronic equipment are expected to be adopted in2002. These are designed to secure responsiblemanagement of electrical and electronic equipmentand cover commercial and household equipment,including, computers, telephones, televisions, radios,mobile phones, fridges and washing machines(white goods), electrical toys etc.

The proposed Directives contain measuresaimed at:

• preventing the quantity and harmfulness ofwaste from electrical and electronic equipment;

• increasing re-use, recycling and other forms ofrecovery of waste electrical and electronicequipment; and

• improving the environmental performance of alloperators involved in the life cycle of electricaland electronic equipment, particularly thoseinvolved in the treatment of electrical and electronic waste.

Householders will be entitled to return wasteelectrical and electronic equipment free of chargeeither to the place of purchase or authorisedcollection point, and producers will be required toprovide for the collection of waste equipmentfrom holders other than private households.Producers will be obliged to recover/recycle certainpercentages of the collected WEEE, rangingbetween 60% to 80% depending on theequipment collected. The obligations on producersto finance the collection, treatment, recovery anddisposal of WEEE will arise no later than 5 yearsafter the entry into force of the Directive.

The proposed Directive on hazardous substancesrequires, with certain specified exemptions, thesubstitution of lead, mercury, cadmium, hexavalentchromium, and certain flame retardants(polybrominated biphenyls (PBB) andpolybrominated diphenyl ethers (PBDE)) inelectrical and electronic equipment before 1January 2008.

Industry is now being invited to develop proposalsto implement the provisions of the Directives onthe basis of a producer responsibility initiative.

6.4.5 Construction and Demolition WasteChanging our Ways (1998) challenged theconstruction industry to treat C&D waste as aresource and to take practical steps to achieve therecycling of at least 50% of such waste by 2003,with a subsequent progressive increase to at least85% by 2013. In response, a dedicated Task Force,comprising representatives of all the major sectorsin the Construction and Demolition industry, wasestablished by the Forum for the ConstructionIndustry to co-ordinate the development of anagreed construction industry programme to meetthe specified recycling targets. The Task Force hasreported to the Minister for the Environment andLocal Government and the industry is now beingasked to take financial responsibility for

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implementing its recommendations.

The Task Force report contains a comprehensiveprogramme of measures aimed at achievingsignificant increases in the recycling of C&D waste.In all, 66 recommendations are made. These will betaken forward through the establishment of theNational Construction and Demolition WasteCouncil recommended in the Report. The Councilwill largely consist of representatives of theorganisations represented on the Task Forcetogether with other parties identified as havinga contribution to make, such as the National RoadsAuthority, which has an important role indetermining specifications for road works.Funding will be shared by the participants.

6.4.6 Tyres Council Directive 1999/31/EC on the landfill ofwaste requires Member States to prohibit theacceptance of most whole used tyres at landfillswith effect from July 2003 and shredded used tyreswith effect from July 2006. On foot of thisimminent landfill restriction alternativearrangements for the recovery of waste tyres mustbe put in place. The Department of theEnvironment and Local Government has asked theIrish Tyre Industry Association (ITIA) to develop aproducer responsibility initiative, by the end of2002, in relation to the recovery of waste tyres. Inthe absence of an agreed scheme mandatoryobligations will be imposed.

6.4.7 NewsprintIt has been estimated that around 150,000 tonnesof newsprint are being generated in Ireland eachyear. Most of that newsprint ends up in landfill. It is proposed that a suitable producerresponsibility scheme be developed to divertnewsprint from landfill. The Department of theEnvironment and Local Government has initiateddialogue with producers and distributors toconsider the development of such a scheme in2002. In the absence of an agreed schememandatory obligations will be imposed.

6.4.8 BatteriesCommon EU rules on the marketing, marking,separate collection, recovery and disposal ofcertain types of batteries containing specifiedlevels of heavy metals (mercury, cadmium andlead) were transposed into Irish law by the WasteManagement (Hazardous Waste) Regulations 1998. As discussed in paragraph 3.6.3 there are a numberof collection systems in place to recover usedbatteries. However, more systematic collection andreporting arrangements are required. This can beachieved through producer responsibility and theDepartment is initiating dialogue with the relevantsectors to devise and agree a suitable scheme.

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Biological treatment of organicwaste encompasses bothcomposting (aerobic) andanaerobic digestion.

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Background

National Strategy onBiodegradable Waste

Objectives of National Strategyon Biodegradable Waste

Home Composting

Key ActionsThe Government will-• draw up a National Strategy

on Biodegradable Waste in theMunicipal Waste Stream in2002;

• support the provision by localauthorities of infrastructurefor the biological treatment oforganic waste;

• introduce product standardsfor compost derived frommunicipal waste;

• encourage the development ofmarkets for those products;

• support the development ofwidespread home composting.

7.1 Background

Biodegradable materials comprise a significantelement of the municipal waste stream, andinclude putrescible food and garden wastes, paper,cardboard and to some extent wood and textiles(”organic” wastes). It is estimated that organicwastes amount to some 60% of total municipalwaste arisings. Virtually all of this waste iscurrently landfilled. However, a small number ofmunicipal composting facilities have now beenestablished by local authorities. Efforts are alsobeing made to further promote homecomposting.

7.2 National Strategy onBiodegradable Waste

The Government will draw up a National Strategyon Biodegradable Waste in 2002 in consultationwith the National Waste Management Board. Thiswill meet the requirement of the EU LandfillDirective to have such a strategy in place by July2003. In particular, the Directive requires MemberStates to take steps progressively to divertbiodegradable waste from landfill. Relevanttargets are –

Year Maximum Permitted to Landfill2006 75% of 1995 tonnage of municipal

biodegradable waste2009 50% of 1995 tonnage2016 35% of 1995 tonnage

Increased diversion of organic waste from landfilldoes not have to await the preparation of theNational Strategy on Biodegradable Waste. Theregional and local waste management plansalready provide generally for the introduction ofsegregated collection systems for dry and organicrecyclables (which is essential to ensure a cleanfeedstock and a quality, uncontaminated compostproduct), and the development of a network of –

• centralised biological treatment facilities fororganic municipal waste - mainly food/kitchenwastes; and

• separate smaller facilities for composting garden(green) wastes.

These measures will be supported by the fundingprovided under the National Development Plan.

A number of the pilot composting projectsundertaken by local authorities to date have hadvery positive results and local authorities will beencouraged to disseminate and share informationon these projects.

The relative merits of anaerobic digestion andcomposting as biological treatment options formunicipal biodegradable waste are generallydependent upon the availability and characteristicsof the relevant waste materials, prevailing localconditions and the scope for the beneficial use ofthe products derived from the process. The choice ofthe particular form of biological treatment will becase specific and will generally need to be assessedon the basis of a number of criteria, including:

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• the capability to control the quality of rawmaterial inputs;

• flexibility of available anaerobic digestion andcomposting systems;

• initial capital costs;

• proven reliability of performance of technologyof the required capacity;

• security of supply of raw material;

• adaptability of the national power grid to theavailability of alternative energies;

• economies of scale; and

• the need for the provision of strategicallysituated facilities.

Anaerobic digestion may have particular appeal insome regions. The process offers high operationalflexibility and can cater for the treatment of othernon municipal biodegradable wastes such asslurries and industrial food-based materials, whichmay arise in substantial quantities in particularparts of the country.

Both the energy and nutrient contents ofbiodegradable waste are recovered throughanaerobic digestion - the generation of electricityfrom the biogas that is produced in the process hasthe potential to replace non-renewable powersources such as fossil fuels.

Anaerobic digestion ultimately produces lesseramounts of fertiliser than the composting ofbiodegradable waste - this may be very attractivein those regions that are producing substantialsupplies of solid compost, derived from other localsources, in quantities that are already surplus tothe nutrient requirements of the area.

7.3 Objectives of National Strategyon Biodegradable Waste

7.3.1 Objectives of National Strategy onBiodegradable Waste

The National Strategy on Biodegradable Waste willaddress:

• the overall infrastructural requirements to meetthe targets in the Landfill Directive;

• the provision of clear guidance regarding theenvironmental standards and requirementswhich will be applied in the authorisation ofcomposting activities;

• the development and application of theoperational and quality control standards toproduce a marketable high-quality product;

• the provision of an effective and clearlyunderstood regulatory system;

• the dissemination of information oninternational best practice.

7.3.2 Obstacles to the development of compostingCompost derived from municipal waste can havewidespread application as an organicmulch/fertiliser in many areas such as parksmaintenance, landscaping, landfill restoration andsite-remediation purposes.

Ultimately however, composting, whether carriedout by the private sector or public authorities,should generate a product with a clear marketvalue. To do so, it must be developed as a highquality product capable of competing with existingorganic products (peat, manure) in terms of priceand quality. It will be necessary to create a clearidentity for waste derived compost products, andbuild public confidence and trust in their suitabilityfor use, through ensuring consistent quality.

In applying composting standards particular regardwill be had to issues of public and animal health.The spread of BSE and Foot and Mouth Disease inrecent years has led to a heightened awareness ofbiological by-product and waste control issues. Theapplication of additional controls on agriculturaland animal food wastes in particular will increasethe complexity of developing the compostingsector. In this regard a draft EU Regulation layingdown health rules concerning animal by-productsnot intended for human consumption is expectedto be adopted in 2002. Newer technologies andimproved standards for composting and digestionwill therefore be required.

The European Commission is undertaking technicaldiscussions with Member States and otherstakeholders on the development, in the interestsof environmental protection, of a proposedCommunity Initiative on the Biological Treatmentof Biodegradable Waste. This proposed CommunityInitiative is likely to contain measures for:

• Collection of Biowaste;

• Treatment of Biowaste;

• Production of Treated Biowaste;

• Trade of Treated Biowaste; and

• Transport of Treated Biowaste.

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7.3.3 Regulatory systemAs part of the development of the NationalStrategy on Biodegradable Waste, the Department,in consultation with the EPA, will examine thescope for a more streamlined authorisation systemfor composting activities. This would facilitate theearly development of the requisite treatmentcapacity, while respecting essential EUrequirements and the need to ensure effectiveenvironmental protection. A number of facilitieshave already been licensed by the EPA.

7.3.4 Product development, marketingand standardsThe National Waste Management Board will beasked to commission studies into the developmentof high quality compost products. The developmentof standards in Ireland can draw on work alreadycarried out domestically and internationally. Suchstandards need to identify relevant market-drivenparameters (e.g. particle size, nutrients, etc.) andthe means to achieve consistent product qualitystandards (these are standards related to thesuitability of products for specified uses, as distinctfrom minimum regulatory standards laid down forthe purposes of environmental protection).

The Board will also be requested to consider theoptions for developing a comprehensive qualityassurance scheme which will address –

• feedstock requirements;

• process requirements and controls;

• agreed product quality standards (relating topathogens, heavy metals, physical and othercontaminants);

• standardised testing methods;

• criteria for marking and labelling;

• designation of an appropriate certification body.

The Market Development Programme (seeparagraph 5.7.2) will also be tasked to stimulateand develop market demand for waste derivedcompost, of varying qualities and characteristics.

7.4 Home Composting

The local and regional waste management plansprovide for the introduction of a home compostingprogramme for organic waste in rural areasunsuitable for the provision of a separate biowastecollection. Home composting is equally suited tourban areas provided that sufficient garden spaceis available.

Home composting need not be particularlysophisticated and can be usefully undertaken inmany basic forms within;

• an open pit dug in the soil to contain theorganic waste material during the course of thecomposting process;

• a compost box constructed above ground tocontain the organic waste material during thecourse of the composting process;

• a compost pile of organic waste material aboveground, or

• a special compost unit container that is designedto intensify and accelerate composting throughthe natural process of degradation of theorganic waste material.

Natural composting of well blended and gradedorganic waste typically takes some 12 months,provided that a supply of air is available and theappropriate proportions of carbon and nitrogenare present within the constituent materials.However, the maturation time can be reduced toapproximately 6 months through the appropriateand efficient use of compost unit containers.

Home composting has the potential to reducesignificantly the volume of waste presented at thekerbside by householders for collection andtreatment by the relevant agencies, and a numberof local authorities have begun actively toencourage this practice by promoting and sellingcomposting units at a subsidised cost.

The actual composting of organic waste is aparticularly important activity for schools. Notonly do many schools possess sufficient land onwhich to initiate suitable composting initiatives,but the actual composting process itself is highlyrelevant to the wider science curriculum andprovides a focus for awareness raising.

Local authorities will be encouraged to furtherdevelop these initiatives.

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Key ActionsThe Government will-

•develop a public service waste management programme;

•promote, in particular, the use of recycled and recyclable materialsin public procurement policies,including ensuring that within 2 years, all public authorities routinely use recycled paper;

•strengthen the green networks which exist between Government Departments and between Local Authority Environmental Awareness Officers.

Public authorities have responsibility to show goodexample in the area of waste prevention,minimisation and recovery. The Department of theEnvironment and Local Government, in consultationwith the Environmental Network of GovernmentDepartments, will develop a public service waste

management programme in accordance withSection 30 of the Waste Management Act 1996.Guidelines will also be prepared to assist in theimplementation of the programme.

The programme will, in particular, deal with-

• optimal waste prevention,re-use and recycling practice;

• corporate waste management planning;

• the setting of objectives in relation to the management of specific waste types; and

• public reporting on the performance of the relevant authorities.

The Programme will also consider publicprocurement policies. Public procurement accountsfor 14% of the Gross Domestic Product of the EUand this sector offers significant potential inencouraging greater use of recyclates. In particular,the Government will ensure that, within 2 years, allpublic authorities will routinely use recycled paper.

“Green Housekeeping” Guidelines were issued to allGovernment Departments in 1996. However thepublic authority waste programme will be aimed atthe broader public service, including local authorities,health boards, educational institutions, harbourauthorities and statutory boards and authorities.

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National policy on wastemanagement generally was set outin Changing Our Ways, and this inturn informed the local andregional waste managementplanning process which wascompleted in 2001. This PolicyStatement complements andextends the policies outlined inChanging Our Ways and focuses onthe higher levels of the wastehierarchy. It recognises thatsuccess with implementing anambitious prevention, re-use andrecycling programme will have apredominant influence ondecisions on the implementation ofwaste management plans, onactual disposal of waste and on thelevels of investment required forfinal disposal.

Given the complexity of the challenges involved inwaste management, the policies contained in the

Statement must remain flexible, responsive todeveloping needs and open to furtherenhancement and development.

Many of the structural initiatives identified herewill bring new strengths to the modernisation ofwaste management practice and will deliverresearch and policy initiatives in the years ahead.

Alongside the structural initiatives, industry andcommercial sectors are now challenged to respondthrough deeper and wider acceptance of producerresponsibility. The Government has begun to usefiscal measures (plastic bag and landfill levies) andconsideration will be given to further applicationof environmental levies as provided for under theWaste Management Acts 1996 and 2001, wheresuch measures are warranted. Recycling dependson public support and commitment. Many of themeasures set out in this Statement, and in the localand regional waste management plans, will makeprevention and recycling easier for the public andshould command a high level of public supportand participation.

The policies and measures contained in thisStatement will be subject to a published reviewand report at 3 yearly intervals.

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Appendix I

Main EU Instruments relatingto Waste Management

Framework Legislation on Waste

Council Directive 75/442/EEC of 15 July 1975on waste, as amended by Council Directive91/156/EEC of 18 March 1991.

Commission Decision 96/350/EC of 24 May 1996adapting Annexes IIA and IIB to Council Directive75/442/EEC on waste (Text with EEA relevance).

Derogation provided through Council Directive96/59/EC of 16 September 1996 on the disposal ofpolychlorinated biphenyls and polychlorinatedterphenyls (PCB/PCT).

Commission Decision 76/431/EEC of 21 April 1976setting up a Committee on Waste Management.

Council Recommendation 81/972/EEC of 3December 1981 concerning the re-use of wastepaper and the use of recycled paper.

Framework Legislation onHazardous Waste

Council Directive 91/689/EEC of 12 December 1991on hazardous waste (amended by Council Directive94/31/EC of 27 June 1994 amending Directive91/689/EEC on hazardous waste).

Commission Decision 96/302/EC of 17 April 1996establishing a format in which information is tobe provided pursuant to Article 8 (3) of CouncilDirective 91/689/EEC on hazardous waste(Text with EEA relevance).

Landfill of Waste

Council Directive 1999/31/EC of 26 April 1999 onthe landfill of waste.

Commission Decision 2000/738/EC of 17 November2000 concerning a questionnaire for MemberStates reports on the implementation of Directive1999/31/EC on the landfill of waste.

End-of-Life VehiclesDirective 2000/53/EC of the European Parliamentand of the Council of 18 September 2000 on end-of-life vehicles.

Packaging and Packaging Waste

European Parliament and Council Directive94/62/EC of 20 December 1994 on Packagingand Packaging Waste.

Commission Decision 97/129/EC of 28 January 1997 establishing the identification system forpackaging materials pursuant to EuropeanParliament and Council Directive 94/62/EC onpackaging and packaging waste .

97/138/EC: Commission Decision of 3 February 1997establishing the formats relating to the databasesystem pursuant to European Parliament andCouncil Directive 94/62/EC on packaging andpackaging waste .

Commission Decision 1999/177/EC of 8 February1999 establishing the conditions for a derogationfor plastic crates and plastic pallets in relation tothe heavy metal concentration levels establishedin Directive 94/62/EC on packaging and packagingwaste.

Commission Decision 2001/171/EC of 19 February2001 establishing the conditions for a derogationfor glass packaging in relation to the heavy metalconcentration levels established in Directive94/62/EC on packaging and packaging waste .

Commission Decision 2001/524/EC of 28 June 2001relating to the publication of references forstandards EN 13428:2000, EN 13429:2000, EN13430:2000, EN 13431:2000 and EN 13432:2000 inthe Official Journal of the European Communitiesin connection with Directive 94/62/EC on packagingand packaging waste .

Waste Oils

Council Directive 75/439/EEC of 16 June 1975 onthe Disposal of Waste Oils (amended by CouncilDirective 87/101/EEC of 22 December 1986 )

Batteries and Accumulators

Council Directive 91/157/EEC of 18 March 1991 onbatteries and accumulators containing certaindangerous substances.

Commission Directive 93/86/EEC of 4 October 1993adapting to technical progress Council Directive91/157/EEC on batteries and accumulatorscontaining certain dangerous substances.

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Commission Directive 98/101/EC of 22 December1998 adapting to technical progress CouncilDirective 91/157/EEC on batteries and accumulatorscontaining certain dangerous substances (Text withEEA relevance).

Incineration of Waste

Directive 2000/76/EC of the European Parliamentand of the Council of 4 December 2000 on theincineration of waste.

Council Directive 94/67/EC of 16 December 1994 onthe incineration of hazardous waste.

Commission Decision 97/283/EC of 21 April 1997 onharmonised measurement methods to determinethe mass concentration of dioxins and furans inatmospheric emissions in accordance with Article 7(2) of Directive 94/67/EC on the incineration ofhazardous waste.

Commission Decision 98/184/EC of 25 February1998 concerning a questionnaire for MemberStates' reports on the implementation of CouncilDirective 94/67/EC on the incineration of hazardouswaste (implementation of Council Directive91/692/EEC)

Supervision and Control ofShipments of Waste

Council Resolution of 21 December 1988concerning transfrontier movements of hazardouswaste to third countries.

Council Regulation (EEC) No 259/93 of 1 February1993 on the Supervision and Control of Shipmentsof Waste within, into and out of the EuropeanCommunity [amended by Council Regulation (EC)No 120/97 of 20 January 1997 amendingRegulation (EC) No 259/93 on the supervision andcontrol of shipments of waste within, into and outof the European Community].

Commission Decision 94/774/EC of 24 November1994 concerning the standard consignment notereferred to in Council Regulation (EEC) No 259/93on the supervision and control of shipments ofwaste within, into and out of the EuropeanCommunity.

Council Decision 97/640/EC of 22 September 1997on the approval, on behalf of the Community, ofthe amendment to the Convention on the control

of transboundary movements of hazardous wastesand their disposal (Basle Convention), as laid downin Decision III/1 of the Conference of the Parties.

Commission Decision 1999/412/EC of 3 June 1999concerning a questionnaire for the reportingobligation of Member States pursuant to Article41(2) of Council Regulation (EEC) No 259/93.

Council Regulation (EC) No 1420/1999 of 29 April1999 establishing common rules and procedures toapply to shipments to certain non-OECD countriesof certain types of waste, as amended by:

• Commission Regulation (EC) No 1208/2000 of 8June 2000 amending Council Regulation (EC) No1420/1999 establishing common rules andprocedures to apply to shipments of certaintypes of waste from the European Community toBulgaria and Nigeria;

• Commission Regulation (EC) No 2630/2000 of 30November 2000 amending Council Regulation(EC) No 1420/1999 establishing common rulesand procedures to apply to shipments of certaintypes of waste from the European Community toBahrain, Haiti, Honduras, Libya, Namibia, Qatar,Uzbekistan and the Vatican City (Text with EEArelevance); and

• Commission Regulation (EC) No 1800/2001 of 13September 2001 amending Council Regulation(EC) No 1420/1999.

Commission Regulation (EC) No 1547/1999 of 12July 1999 determining the control proceduresunder Council Regulation (EEC) No 259/93 to applyto shipments of certain types of waste to certaincountries to which OECD Decision C(92)39 finaldoes not apply, as amended by:

• Commission Regulation (EC) No 334/2000 of 14February 2000 amending Regulation (EC) No1547/1999 as regards the control procedures toapply to shipments of certain types of waste toMalaysia;

• Commission Regulation (EC) No 354/2000 of 16February 2000 amending Regulation (EC) No1547/1999 concerning the control procedures toapply to shipments of certain types of waste toChina;

• Commission Regulation (EC) No 1547/1999concerning the control procedures to apply toshipments of certain types of waste to Bulgariaand Nigeria; and

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• Commission Regulation (EC) No 1552/2000 of 14July 2000 amending Regulation (EC) No1547/1999 concerning the control procedures toapply to shipments of certain types of waste to:Estonia, Hong Kong, Hungary, Indonesia;Lithuania, San Marino and Thailand; and

• Commission Regulation (EC) No 1547/1999 asregards shipments of certain types of waste toGuinea .

Directive 2000/59/EC of the European Parliamentand of the Council of 27 November 2000 on portreception facilities for ship-generated waste andcargo residues.

European Waste Catalogue

Commission Decision 94/3/EC of 20 December 1993establishing a List of Wastes pursuant to Article1(a) of Council Directive 75/442/EEC on waste.

Commission Decision 2000/532/EC of 3 May 2000replacing Decision 94/3/EC establishing a list ofwastes pursuant to Article 1(a) of Council Directive75/442/EEC on waste and Council Decision94/904/EC establishing a list of hazardous wastepursuant to Article 1(4) of Council Directive91/689/EEC on hazardous waste, as amended by:

• Commission Decision 2001/118/EC of 16 January2001 amending Decision 2000/532/EC as regardsthe list of wastes;

• Commission Decision 2001/119/EC of 22 January2001 amending Decision 2000/532/EC replacingDecision 94/3/EC establishing a list of wastespursuant to Article 1(a) of Council Directive75/442/EEC on waste and Council Decision94/904/EC establishing a list of hazardous wastepursuant to Article 1(4) of Council Directive91/689/EEC on hazardous waste; and

• Council Decision 2001/573/EC of 23 July 2001amending Commission Decision 2000/532/EC asregards the list of wastes.

Reporting Requirements on WasteManagement PerformanceCouncil Directive 91/692/EEC of 23 December 1991Standardising and Rationalising reports on theimplementation of certain Directives relating tothe Environment.

Commission Decision 94/741/EC of 24 October 1994concerning questionnaires for Member Statesreports on the implementation of certain Directivesin the waste sector (implementation of Council

Directive 91/692/EEC).

Commission Decision 97/622/EC of 27 May 1997concerning questionnaires for Member Statesreports on the implementation of certain Directivesin the waste sector (implementation of CouncilDirective 91/692/EEC).

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Apppendix II

Basic Methodologies of Recycling1. Dry recyclables

Different materials within the waste streamrequire different treatment. The conventionalmethods of recycling of the principal materialspresent within the various waste streams areoutlined below.

However, these largely reflect the traditionalapproach whereby recyclable materials are oftendirected towards those industrial activities thatoriginally generated them (e.g. glass). It is essentialthat additional uses for recyclables are exploredand developed, having regard to the intrinsicproperties of a given recyclate. A more diverserange of viable uses and secondary products willlead to higher demand, stable markets and bettereconomic return for the recycling industry.

Glass

Gross contaminants (e.g. labels and caps) are firstlyremoved from waste glass and the remaining glassis crushed to a high specification into what istermed cullet. Minor contaminants (e.g.impurities) are deliberately removed in the courseof the crushing process. The cullet is thendelivered to a glass container manufacturer whereit is fed into a furnace along with virgin rawmaterials. The mixed material is melted in thefurnace and the molten glass is formed intocontainers by an automated process.

Every tonne of glass that is recycled conserves overone tonne of raw materials, consisting primarily ofsand and limestone. Glass recycling also savesenergy – the energy required to melt glass cullet issome 30% less than that needed to melt virgin rawmaterials. This corresponds to a reduction of 0.25tonnes of carbon dioxide emissions per tonne ofglass recycled. Glass can also be reprocessedrepeatedly without loss in quality. Glass recyclingfulfils a very important role in heighteningawareness, as each individual can readily make acontribution to recycling by simply availing of theextensive bottle bank network – this oftenrepresents the first step towards becoming anenvironmentally aware consumer.

Paper

Waste paper is typically saturated and turned intopulp, which can then be mixed with an adequateproportion of virgin wood pulp fibres for use inthe manufacture of recycled paper and cardboard.Paper recyclate does suffer from some reductionin quality during recycling due to a shortening offibres during reprocessing and this limits thenumber of times that the material can be recycled.

It is estimated that each tonne of recycled papereliminates the need to harvest 15 medium-sizedtrees for use in the manufacture of virgin paper.The manufacture of recycled paper also results insignificant reductions both in emissions to theatmosphere and effluent discharges in comparisonwith production from virgin material.

Aluminium

Aluminium cans can be melted in a furnace andthe molten liquid formed into ingots. These ingotscan then be reprocessed in the manufacture ofnew aluminium products.

There are significant energy savings associatedwith the recycling of metals. For aluminium,reprocessing is estimated to be 95% more energyefficient than production of aluminium from rawmaterials, corresponding to reduced emissions ofsome 10 tonnes of carbon dioxide emissions pertonne of aluminium reprocessed. Aluminium canalso be recycled repeatedly without any loss inquality.

Steel

Scrap steel can be melted and used in themanufacture of steel products. Used steel cans areproblematic to recycle as they must generallyundergo a process to remove the tin coatingbefore they are suitable for use in the manufactureof recycled steel.

The recycling of steel is estimated to use 25% ofthe energy required to produce steel from virginraw materials, giving rise to an estimated saving ofsome 1.5 tonnes of carbon dioxide emissions pertonne of steel reprocessed.

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Plastics

Material recycling of plastics into high gradeproducts requires that the waste plastic iscompletely segregated into discrete types of plastice.g. PET, HDPE etc.. A very high degree of purity isessential and the degree of segregation isfrequently required to be absolute. It is alsopossible to materially recycle mixed plastics into alower grade of plastic.

In mechanical recycling, gross contaminants (e.g.labels, caps, etc.) are firstly removed from wasteplastics. Dirty plastic may also need to be washed.Clean plastic is subsequently shredded, melted,extruded and regranulated. The regranulate canthen be reprocessed into recycled plastic productsthrough an almost entirely automated process.There are more sophisticated processes available toenable plastics to be recycled into a wide variety ofproducts e.g. PET plastics (for example, from softdrink plastic bottles) can be converted into apolymer that can be used to produce fibres thatare suitable for use in many applications, includingthe manufacture of clothing, roofing felts andhome furnishings.

Plastic recycling and related emissions hassignificant potential to save energy. Thedisplacement of virgin PET material has beenroughly estimated to provide a reduction of 3tonnes of carbon dioxide emissions per tonneof material recycled.

Timber

First grade (unimpregnated) shredded timber istypically sold to the chipboard manufacturingindustry. Second grade wood chippings(impregnated) can be used as an industrial boilerfuel. Unimpregnated shredded timber can also beused to produce compost.

Textiles

Higher quality garments are distributed to CharityShops and certain textiles of marginal quality areused in the manufacture of industrial cleaningcloths. Some of the lighter clothing textiles areexported to Third World countries.

2.Organic wastes

The organic proportion of the municipal wastestream can generally be divided into two distinctfractions:

• Organic Waste consisting of mixed kitchen typewastes and garden wastes, and

• Green Waste consisting solely of clean gardenand landscaping wastes.

The organic fraction of municipal waste cangenerally be treated biologically throughcomposting or anaerobic digestion.

Composting

Composting is a natural, aerobic treatment process,involving the controlled biological decompositionof organic waste into a soil-like material known ashumus that can be used beneficially by gardenersand farmers. The process is well suited to dealingwith the biodegradable organic fraction ofhousehold waste, and is readily within the scope ofmost local authorities. Two options may beemployed - centralised composting facilities, whichare generally only viable if servicing areas of highpopulation density, and home compostingschemes, which are more suited to low densityrural areas.

In centralised composting, biodegradable wastesare usually segregated at source, by means of acollection system, which employs a separate bin forbiodegradable waste. The alternative to theseparate collection system is through mechanicalseparation of the organic fraction following thecollection of mixed municipal waste and thesubsequent biological stabilisation of thebiodegradable material. Separation at source willprovide the potential to produce high qualitycompost which is suitable for a wide range ofapplications. Careful site selection and theapplication of appropriate technologies to controlemissions can readily address potentialenvironmental impacts. In developed wastemanagement systems, composting has successfullyevolved from a low technology outdoor process toan enclosed, automated, high technologyoperation, where the waste is placed in a sealedbuilding or chamber and the climate conditions areexternally controlled to optimise the levels ofoxygen, temperature and the moisture content.Modern enclosed facilities are generally managedwith the assistance of a computer-controlledsystem.

The compost product can be used as a soilconditioner or as a mulch for the suppression ofweed growth. There is a ready market for finishedcompost in the rehabilitation of landfill sites –mature compost can also be made available to

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consumers by the local authority.

Green Waste composting can also be carried out ata central location that is designed to facilitate thecontrolled production of compost in the open airthrough the introduction of optimised conditionsof temperature, moisture and oxygen to theprocess. Materials delivered to these centralfacilities by landscape gardeners and the public areformed into tidy heaps termed ”open windrows”and compost is typically produced within a periodof 6 months.

Green Waste and certain kitchen wastes can becomposted within the domestic garden over aperiod of 6 to 12 months and provides thededicated gardener with a ready supply ofcompost for use as a nutrient, soil conditioner orweed suppressant. The composting process can beassisted by the use of compost containers that aredesigned to intensify and accelerate the naturalcomposting process.

Anaerobic Digestion

This process has been used for many years to treatagricultural waste and sewage sludge. Its use inthe treatment of organic municipal wastes is morerecent but there are now a number of such plantsin operation outside Ireland. Though moreexpensive plant is required for anaerobic digestionthan for composting, it has the advantages ofrecovering energy from the methane that isproduced by the process. Sludges and otherwastes from the food industry are also amenableto treatment by the process.

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Appendix III

Glossary of terms

Anaerobic Digestion means ”the biologicaldecomposition of biowaste in the absence ofoxygen and under controlled conditions by theaction of micro-organisms (including methanogenicbacteria) in order to produce biogas anddigestate”.

Biodegradable Waste (Biowaste) means ”anywaste that is capable of undergoing anaerobic oraerobic decomposition, such as food and gardenwaste, and paper and paperboard”.

Biogas means ”the mixture of carbon dioxide,methane and trace gases resulting from thecontrolled anaerobic digestion of biowaste”.

Biological Treatment means ”composting,anaerobic digestion, mechanical/biologicaltreatment or any other biological process which isspecifically designed for sanitising biowaste”.

Bring Centre means ”a conveniently situatedselection of material-specific receptacles to whichmembers of the public can bring their variousrecyclables for subsequent collection and deliveryto material recovery facilities”.

Civic Amenity Facility means”a reception facility provided at a central locationto enable householders to directly depositrecyclable and non-recyclable materials, bulkyhousehold wastes and certain categories ofhousehold hazardous waste”.

Commercial Waste means ”waste frompremises used wholly or mainly for the purposesof a trade or business or for the purposes ofsport, recreation, education or entertainmentbut does not include household, agriculturalor industrial waste”.

Composting ”means the autothermicand thermophilic biological decomposition ofseparately collected biowaste in the presence ofoxygen and under controlled conditions by theaction of micro-and macro-organisms in orderto produce compost”

Compost means ”the stable, sanitised andhumus-like material rich in organic matterand free from offensive odours resulting fromthe composting process of separately collected

biowaste, which complies with specified minimumstandards of environmental quality”.

Construction and Demolition Waste means”all waste that arises from construction, renovationand demolition activities, including all wastesmentioned in Chapter 17 of the European WasteCatalogue”.

Core Prevention Team (CPT) means”a distinct unit, established and resourcedwithin the Environmental Protection Agency, thatis tasked with the planning and implementationof the new National Waste PreventionProgramme”.

Cullet means ”recycled glass which has beenpretreated to a very stringent specification and isin a form suitable for use as a secondary rawmaterial in glass reprocessing”.

Digestate means ”the material resulting from theanaerobic digestion of separately collectedbiowaste, which complies with specified minimumstandards of environmental quality”.

Disposal includes ”any of the activities specifiedin the Third Schedule to the Waste ManagementAct 1996”.

End-of-Life Vehicles means ”a vehicle which iswaste within the meaning of Article 1(a) ofDirective 75/442/EEC on Waste”.

Environment Fund means ”a fund consisting ofsuch accounts as the Minister may determine thathas been established under the WasteManagement (Amendment) Act 2001, managed byor on behalf of the Minister, that will generally beavailable for use for purposes of environmentalprotection”.

Environmental Management System means”a system of management that is designed tocontrol the operation and maintenance of anactivity with regard to its effects on theenvironment”.

European Waste Catalogue means ”a list ofwastes (including the Hazardous Waste List)established, pursuant to Council Directive75/442/EEC on Waste, by Commission Decision94/3/EC and which has been replaced since 1stJanuary 2002 by Commission Decision 2000/532/EC(as amended by Commission Decisions 2001/118/ECand 2001/119/EC)”.

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Facility means ”in relation to the recovery ordisposal of waste, any site or premises used forsuch purpose”.

Green Waste means ”vegetable waste fromgardens and parks, tree cuttings, branches, grass,leaves (with the exception of street sweepings),sawdust, wood chips and other wood waste nottreated with heavy metals or organic compounds”.

Hazardous Waste means ”waste of a class listedin the current Hazardous Waste Catalogue, whicheither:

• constitutes Category I type waste as specified inPart I of the Second Schedule to the WasteManagement Act 1996 and has any of theproperties specified in Part III of the sameSchedule; or

• constitutes Category II type waste as specified inPart I of the Second Schedule to the WasteManagement Act 1996 that contains any of theconstituents specified in Part II of the sameSchedule and has any of the properties specifiedin Part III of the same Schedule;

or any other waste having any of the propertiesspecified in Part III of the Second Schedule to theWaste Management Act, 1996 that may beprescribed as hazardous waste”.

Hazardous Waste List (HWL) means ”a list ofhazardous waste established, pursuant to CouncilDirective 91/689/EEC on Hazardous Waste, byCouncil Decision 94/904/EC and which has beenreplaced since 1st January 2002 by CommissionDecision 2000/532/EC (as amended by CommissionDecisions 2001/118/EC and 2001/119/EC)”.

Home Composting means ”the composting ofthe biowaste as well as the use of the compost in agarden belonging to a private household”.

Household Waste means ”waste producedwithin the curtilage of a building or self-containedpart of a building used for living accommodation”.

Industrial Waste means ”waste produced orarising from manufacturing or industrial activitiesor processes”.

Life Cycle Assessment of a Product means”an assessment of the effects on the environmentof the manufacture, distribution, marketing anduse of the product and the recovery or, asappropriate, the disposal thereof (including the

use of energy and raw materials in, and theproduction of waste from, any of the saidactivities)”.

Material Recovery Facility means”a central facility where discarded recyclablewaste materials may be taken for segregationand pre-treatment”.

Mechanical/Biological Treatment means”the treatment of residual municipal waste,unsorted waste or any other biowaste unfit forcomposting or anaerobic digestion in order tostabilise and reduce the volume of the waste”.

Minimisation of Waste means ”any technique,process or activity that either avoids, reduces oreliminates waste at its source or results in re-use orrecycling of the waste”.

Municipal Waste means ”household waste aswell as commercial and other waste which,because of its nature and composition, is similar tohousehold waste”.

Organic Waste means ”any waste that is capableof undergoing anaerobic or aerobicdecomposition, such as food and garden waste,and paper and paperboard”.

Packaging means ”any material, container orwrapping, used for or in connection with thecontainment, transport, handling, protection,promotion, marketing or sale of any product orsubstance, including marketing as may beprescribed”.

The Polluter Pays Principle means ”theprinciple set out in Council Recommendation75/436/Euratom, ECSC, EEC of 3rd March 1975regarding cost allocation and action by publicauthorities on environmental matters”.

Pre-Treatment of Recyclables means”the further separation and processing to whichcollected recyclable materials must be subjectedin order to meet the required specifications foruse in a reprocessing operation”.

Prevention of Waste means ”measures aimedat reducing the quantity and the harmfulness tothe environment of waste andthe materials and substances contained therein”.(Based on WEEE)

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Processing means ”performing a series ofoperations in the course of the manufacture ortreatment of a product”. (Derived from dictionarydefinition)

Producer Responsibility means ”arequirement to take steps for the purpose of theprevention, minimisation, limitation or recoveryof waste as respects the class or classes of productto which the requirement relates and may includea requirement to achieve specified targets inrelation to those matters”.

Recovery means ”any activity carried on for thepurposes of reclaiming, recycling or re-using, inwhole or in part, the waste and any activitiesrelated to such reclamation, recycling or re-use,including any of the activities specified in theFourth Schedule to the Waste Management Act1996”.

Recycling of Waste means ”the subjection ofwaste to any process or treatment to make it re-usable in whole or in part”.

Residual Municipal Waste means ”the fractionof municipal waste remaining after the sourceseparation of municipal waste fractions, such asfood and garden waste, packaging, paper andpaperboard, metals, glass, and unsuitable for theproduction of compost because it is mixed,combined or contaminated with potentiallypolluting products or materials”.

Re-use means ”the use of a product on more thanone occasion, either for the same purpose or for adifferent purpose, without the need forreprocessing”.

Reprocessing means ”to subject to special oradditional processing before reuse”. (Derived fromdictionary definition)

Source Separation means ”taking steps in asystematic manner for the purpose of separatingspecified waste types from other waste materialsand the holding of such waste so separated priorto its collection, recovery or disposal”.

Stabilised Biowaste means ”the waste resultingfrom the mechanical/biological treatment ofunsorted waste or residual municipal waste as wellas any other treated biowaste which does notcomply with specified minimum standards ofenvironmental quality”.

Sustainable Development means”Development that meets the needs of the

present, without compromising the ability offuture generations to meet their own needs”.

Treatment of Waste means ”any thermal,physical, chemical or biological processes thatchange the characteristics of waste in order toreduce its volume or hazardous nature or facilitateits handling, disposal or recovery”.

Waste Audit means ”an evaluation of themanner in which an activity is carried on with aview to identifying opportunities for-

• preventing or minimising the production ofwaste from the activity concerned or theharmfulness of any waste produced from theactivity; and

• recovering any waste so produced,

having regard to the results of a waste auditconducted in relation to the activity”.

Waste from Electrical and ElectronicEquipment (WEEE) means ”equipment whichis dependent on electric currents orelectromagnetic fields in order to work properlyand equipment for the generation, transfer andmeasurement of such currents and fields fallingunder certain specified categories and designed foruse with a voltage rating not exceeding 1000 Voltfor alternating current and 1500 Volt for directcurrent and which is waste within the meaning ofArticle 1(a) of Directive 75/442/EEC, including allcomponents, sub-assemblies and consumables,which are part of the product at the time ofdiscarding”.

Waste Licence means ”a licence issued by theEnvironmental Protection Agency for a wastefacility in accordance with the Waste ManagementAct 1996”.

Waste Permit means ”a permit issued by a localauthority for a waste facility in accordance withthe Waste Management Act 1996”.

Waste Minimisation Club means ”apartnership consisting of a number oforganisations that are interested in reducing wasteproduction and improving overall environmentalperformance and who are collectively seeking toachieve these common objectives more efficientlythrough mutual co-operation”.

Windrow means “an elongated heap in whichbiowaste is placed for the purpose of composting,and which is periodically turned by mechanicalmeans in order to increase the porosity of theheap and the homogeneity of the waste”

ZDE08 Dept.of.En waste doc · 2018. 7. 13. · • promote the use of internet "waste exchanges" and "swap shops"; • develop guidance on refurbishment and re-use of IT equipment,

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