prop · GQ03117d3 · 2003-05-16 00:00:00 — : non-toxic, resource-saving environmental life cycles Summary of Government 2002/03:117 ENVIRONMENTAL QUALITY OBJECTIVES AND ACTION STRATEGIES THE LIFE-CYCLE STRATEGY: A GUIDE TO ATTAINING Current work linked with the life-cycle strategy policy for a non-toxic, resource-saving environmental life cycle Improved material recovery from waste Formation of a council for waste issues Boost to municipal, regional and national waste planning Clarification of the waste owners responsibility Producer responsibility for packaging and waste paper Improved management of households hazardous waste Review of municipalities sole right to manage hazardous waste legislation and definition of waste Intensified supervision and guidance SPECIFIC PRODUCT CATEGORIES AND TYPES OF Tighter controls on producers goods Financial guarantees for producer responsibility Extended system for return packaging Refined producer responsibility for vehicles Final storage of mercury Improved disposal of and demolition waste Swedish Government 2002/03:117 proposes objectives, strategies and measures to bring about a society characterised by non-toxic, resource-saving environmental life cycles. Our economic development is based largely on production and consumption of products. These processes use up materials and energy. Achieving ecological equilibrium in our use of communal resources is crucial if we are to create a sustainable society. It is also part of the task of fulfilling many of the environmental quality objectives adopted by the Riksdag. Our production and consumption result in abundant waste. One key aspect of environmental life-cycle management is therefore ecologically sound management of waste. In this , the Government develops national waste policy further. management is an essential part of the infrastructure that must function smoothly in society. Recent years have seen the adoption of many new policy instruments, while various parties have greatly intensified their commitment. Systems that are credible and easily accessible to producers and consumers alike are therefore called for. The Government will give the () primary responsibility for coordinating the strategy for attaining a society with non-toxic, resourcesaving environmental life cycles. The EPA should be charged with coordinating the inputs of all parties engaged in environmental life-cycle management issues in society. To make progress towards ecologically sound waste disposal, we need to reduce the volume of waste. From the manufacturing stage on, producers must consider a products environmental impact in life-cycle terms. Design, choice of materials and consumption of energy in production and use must be taken into account. Sustainable environmental life-cycle management is, moreover, attainable only if most waste can be reused and recycled. This allows saving of both material and energy and, at the same time, a decrease in environmental problems from waste. Legislation on producer responsibility and bans on landfilling of waste are parts of the Governments work in this area. Supplementing present-day policy instruments is desirable. This involves further development of producer responsibility for packaging and waste paper. It also gives the municipalities greater influence over information and planning with respect to producer responsibility. The return system for aluminium cans and polyethylene terephthalate (PET) bottles is also being developed further. In the long term, this will be extended to include all plastic and metal containers for ready-to-drink beverages. The Government also proposes new interim targets regarding biological waste treatment, to improve the recovery of nutrients and phosphorus from food waste. One important means of making waste management ecologically sustainable is to reduce hazardous waste. Substances that are hazardous to health or otherwise harmful must be removed from environmental life cycles. One measure the Government will undertake is further clarification of the municipalities responsibility for households hazardous waste. The Government will also require long-term storage of mercury in deep rock locations. The , which is based on an agreement between the Social Democratic Government, the Left Party and the , refers to the following commission proposals and reports. The commissions and assignments concerned were initiated by the Government. The Producer Responsibility Commission (M 2000:01), on the Governments behalf, evaluated current producer responsibility for packaging, waste paper, tyres and vehicles. Systems for returning beverage containers and voluntary commitments concerning office paper waste, on the one hand, and and demolition waste on the other, were reviewed. The Commission presented its proposals in its report on resource recycling and recovery (SOU 2001:102). The 2001 , on the Governments behalf, evaluated the functioning of the system of waste tax, and also evaluated and analysed the economic and environmental consequences of introducing a tax on waste that is incinerated. The Commissions proposals were presented in its report on current and future tax on waste (SOU 2002:9). The Mercury Commission (M 1999:01), on the Governments behalf, was appointed to coordinate and investigate further national work on final storage of mercury-containing waste in rock shelters. The Commission presented its proposals in its report on the safe storage of mercury (SOU 2001:58). The Swedish EPA, on the Governments behalf, evaluated the development of waste management over the past few years. The results of this evaluation were reported in its report (No. 5177) on ecologically sustainable waste disposal, which also contained proposals for amendments and additions to current legislation on disposal of waste. The Swedish EPA, on the Governments behalf, issued a report (No. 5237) on waste collection and recycling that followed up producer responsibility for 2001 and proposed amendments to the Motor Vehicle Disposal Act (1975:343). The Swedish EPA, on the Governments behalf, issued a report (No. 5225) on progress towards environmentally sound products after being instructed to devise documentation for continued development of environmentally sound product policy. The Swedish EPA, on the Governments behalf, issued a report on its government assignment to investigate landfilling of waste in sparsely inhabited rural areas. This report concerned the suitability of applying the scope for granting exemption to isolated settlements, as defined in the EU Landfill Directive (1999/31/EC). The Swedish EPA, on the Governments behalf, issued a report that followed up the bans on landfilling of waste by describing the outcome of, and compliance with, the bans on landfilling of combustible and organic waste. In consultation with the and the , the Ministry of the Environment put forward proposals for legislative amendments to supplement the regulations concerning the vehicle-disposal charge. On , the Government resolved to request opinion of the legislative proposals contained in the bill. statement has resulted in minor adjustments in the Ministrys proposals. Swedish environmental policy environmental quality objectives and action strategies To guide efforts to bring about a sustainable society, the Riksdag has adopted 15 national environmental quality objectives. These define intended conditions in the Swedish environment within a generation. They also specify the course of environmental efforts at all levels in and also work in international contexts. The 15 objectives were formulated on the basis of how much the environment can withstand, and with five basic amenities as their premise. The environmental quality objectives are aimed at: protecting biodiversity and the natural environment taking care of the cultural environment and the amenities of the cultural heritage preserving the long-term production capacity of ecosystems ensuring sound conservation of natural resources. and above the national objectives, the Riksdag has also adopted various interim targets for each of the environmental quality objectives. The interim targets are intended to ascertain whether the transition to a sustainable society within one generation is going in the right direction. These are measurable, and they are to be attained at specific dates. A few activities in society are causing several current environmental problems. Examples are transport services, use of energy and flows of goods, materials and chemicals. The Government has proposed three action strategies, one for each of these areas, to coordinate measures to attain several of the environmental objectives. The leading strategies for attaining the environmental quality objectives are: A strategy for more efficient energy use and transport services. A strategy for non-toxic, resource-saving environmental life cycles (the life-cycle strategy). A strategy for conservation of soil, water and the built environment. The life-cycle strategy: a guide to attaining environmental objectives Goods that circulate in society contain large quantities of various materials. Many require abundant energy to produce and contain substances found in limited quantities. For society to achieve sustainable environmental life-cycle management, it is therefore essential for us to administer joint resources with a view to the long term. Many products, moreover, contain substances that are toxic or hazardous, and should not be released into the environment. This means that the most harmful substances should be phased out and that substances still in use should be handled in a safe . The life-cycle strategy is intended to bring about a society with non-toxic, resource-saving environmental life cycles. It includes changed consumption patterns, more effective production methods and a system of waste management more geared to recycling. The lifecycle strategy is based on an approach to materials and products that considers their entire life cycle, so as to give as complete a picture as possible of their environmental impact. The energy consumed for a product should also be included in the assessment. The Government considers that environmental life-cycle management needs developing, and that one means of doing so is coordination of various public agencies measures in product policy and waste management. The high degree of mobility of goods across national borders also means that there is a great need for joint international initiatives. For example, work is under way in the EU to draft an integrated, environmentally oriented product policy. The life-cycle strategy has also made up a key part of Swedish efforts since the 2002 World Summit on Sustainable Development in . The Governments assessment: the Swedish EPA should be given primary responsibility for coordinating and developing the strategy for non-toxic, resource-saving environmental life cycles (the life-cycle strategy). The Government intends to commission the EPA to draft proposals on how to develop the strategy further. Work to create non-toxic, resource-saving environmental life cycles calls for collaboration in several areas. Many of the environmental objectives and action strategies that various public agencies are working towards are related to the life-cycle strategy. For this strategy to attain its aims, greater coordination of inputs is required. This is why the Government has appointed the EPA as the agency with responsibility for the life-cycle strategy. The EPA was already the agency responsible for overall environmental issues. However, being in charge of coordinating the life-cycle strategy does not mean that the EPA is now taking over responsibility from the various agencies involved in attaining the environmental objectives. Current work linked with the life-cycle strategy Measures to create an environmentally oriented product policy A product affects the environment throughout its life cycle. Energy and resources are used during every stage, from production and processing of raw materials to the use of the product and its final disposal as waste. To obtain a comprehensive picture of a products environmental impact, a life-cycle perspective of this kind is essential. Work on an environmentally oriented product policy is being conducted internationally by the Swedish EPA, among other agencies. Within the EU, too, work is under way to draft a proposal for a common, environmentally oriented product policy the integrated product policy (IPP). The purpose of this policy is to reduce the environmental load of goods throughout their life cycle and to make resource use more efficient. The Government considers that this joint work needs to focus particularly on finding ways of breaking the connection between economic growth and adverse environmental impact. The task of creating a more attractive market for recycled materials is also important. work is also under way at global level. At the Summit, the delegates agreed to establish a ten-year framework of programmes for sustainable production and consumption. For part, the Government has presented proposals for developing best practice in its work on an environmentally oriented product policy. We shall also engage in technological collaboration and other exchange of experience with various developing countries. For trade and industry, making goods and services ecoefficient affords new business opportunities. Swedish companies are already well ahead in the area. The work under way in enterprises and the public sector on environmental management systems, environmental labelling and environmental requirements in procurement are additional key aids to efforts for sustainable consumption and production patterns. will be given a more role in the area and work on, for example, environmental requirements in public procurement. As before, the Council has been working on the EUs voluntary Community eco-management and audit scheme (EMAS), and on certified environmental product declarations (EPDs). New chemicals policy in the EU A new chemicals policy is being developed in the EU. This involves a reorganisation for which has long striven. The aims of continuously replacing hazardous substances and applying the precautionary principle are generally dominant in the new policy. These measures are also crucial in Swedish chemicals policy. Both new substances and those already in existence must be covered by the same system of registration, assessment and approval of chemicals (REACH). Responsibility for knowledge on the properties of substances is being laid on industry. This information must be recorded in a joint EU register. has approved the basics of future chemicals policy, and Commission is working on its final wording. In its efforts henceforth, should work to ensure that the new European policy becomes an effective tool for remedying problems in the chemicals sector. Environmental technology in the waste sector has a tradition of , innovative environmental policy. This has gone hand in hand with major investments in infrastructure, such as treatment equipment for wastewater and incineration plants, and in techniques of material recovery. The focus on technical solutions to environmental problems has resulted in Swedish environmental-technology companies being among the foremost worldwide. The global market for environmental technology is expanding rapidly, and is expected to amount to billion a year by 2010. Despite great expertise in the area, Swedish companies have only a very small share of this market. In 2000, exports of environmental technology amounted to billion. Stepping up exports of Swedish environmental technology would favour both the environment and growth in the environmental-technology sector as a whole. To support companies in their export drives, the is engaged in activities in , the Baltic countries and the other EU candidate nations, and also in . These are regarded as budding export markets in great need of waste-management systems. To provide further support for businesses, the Government aims to establish a national centre for development, entrepreneurship and export of environmental technology. This centre will build on the sectors lead, and work to further promote commercialisation and export of environmental technology. Ecologically sound waste disposal policy for a non-toxic, resource-saving environmental life cycle can be both a resource and an environmental problem. management that functions poorly entails immense wastage of valuable material and can also result in environmental and health problems. The objective is to utilise as far as possible the resources contained in waste. At the same time, it is important to reduce its adverse impact in the form of emissions of methane from landfills and carbon dioxide from incineration plants, and discharges of heavy metals and organic environmental toxins. There is a hierarchy for the management of waste. First, it means that we should try to produce as and as harmless waste as possible. For waste that nonetheless arises, material recovery should be a higher priority than energy recovery when this is environmentally justified. As a method of last resort, the waste should be disposed of by landfilling. In the choice between material recovery and incineration, there are no self-evident answers to the question of which method is preferable for all types of waste. In general, several analyses support material recovery, which enables materials and nutrients to be recycled. In recent years, the Government has taken numerous measures with respect to waste, to encourage a shift towards sustainable environmental cycles. Examples of recent regulation in the waste sector are: Producer responsibility for packaging, waste paper and tyres (1994) Producer responsibility for vehicles (1998) Tax on waste (2000) Producer responsibility for electric and electronic products (1 2001) on landfilling of unseparated combustible waste (2002) on landfilling of organic waste (enters into force on 1 January 2005). The Government wishes to maintain its measures in waste policy and considers that a key part of this work consists in a clearer consumer perspective. It must be easier for households to sort and hand in their waste, so that a growing proportion of waste is recycled. Information on the purpose and benefits of household participation is also Moreover, the Government sees a need for improved coordination of the various systems of collection, such as those for packaging, waste paper, household waste, hazardous waste, and bulky refuse. One overall change that is required for us to make system of waste disposal more ecoefficient is a reduction in the quantity and hazardousness of waste. This cannot be attained by measures at the waste stage alone but, rather, is largely dependent on changes in production and consumption. Today, quantities of waste are increasing in line with economic trends. A fundamental means of attaining the objective of sustainable environmental life-cycle management is more resource-saving production and consumption, to break the association. Here, companies that design and manufacture products have a major responsibility for reviewing the environmental impact of products throughout their life cycle, using more recovered and recycled materials, and considering the need for future recycling of the products. Consumers, too, have a key role in the choice of products and their use. In , the EPA is working for an environmentally oriented product policy. Similar efforts are under way in the EU and at international level. Priorities in waste management A smaller volume and harmless waste reduce consumption of resources and the spread of toxic substances. Material recovery saves resources and energy compared with use of new raw materials. Incineration makes use of the energy in waste for which material recovery is not worthwhile. Landfilling is the last resort, when neither materials nor energy can be recycled. The EU member states have agreed on a hierarchy for ecoefficient waste disposal. First of all, measures to prevent waste arising are to be taken. An environmental impact assessment includes a ruling on how to dispose of the waste that nonetheless arises. Improved material recovery from waste A comprehensive approach to waste is required for ecologically sound waste management to be attained. Various measures are necessary to reduce quantities of waste and redirect flows according to the hierarchy of various treatment methods. Increasing the rate of material recovery from waste is one means. Recovered raw materials represent energy saving compared with use of new raw materials. Moreover, material recovery often results in lower emissions than other treatment methods. When producers start recovering materials, a valuable link with environmentally aware product development also arises owing to their wish to rationalise production. The Government intends to strengthen the structure of material recovery that has evolved over many years. Biological treatment methods are an area in which the Government recognises a need for supportive measures. Here, new interim targets are proposed for food waste and waste from the food industry. Responsibility for various parts of waste management also needs clarifying. Clearer responsibility for the waste owner means that industrial and other activities must consider using scope for material recovery. In addition, measures to improve households collection of packaging and waste paper are needed. Large-scale incineration of waste should also be reviewed. Industrial and other activities must consider and use various methods for material recovery. The Government is to investigate whether tax on waste that is incinerated should be introduced, to encourage an increase in material recovery. and above the interim targets for biological treatment of food waste, there is interest in another interim target relating to conservation of materials and energy for goods and services in a life-cycle perspective. A interim target in this area must, however, fulfil the same criteria that apply to the other interim targets, i.e. it must be measurable and a date must be set for its attainment. The Government considers that EPA, as the coordinating agency with future responsibility for the life-cycle strategy, and , and Planning should be jointly commissioned to present proposals to the Government for the next bill on environmental objectives in 2005. Interim targets for recovery of food waste The Governments proposal: two interim targets should be added to the existing interim targets under the national environmental quality objective A good built environment: Not later than , at least 35 per cent of food waste from households, restaurants, catering and shops should be recycled through biological treatment. This objective relates to food waste sorted at source and destined for both home composting and central treatment. Not later than , food waste and other comparable waste from the food industry etc should be recycled through biological treatment. This objective relates to the kind of waste that arises without being mixed with other waste, and is of the quality that, after treatment, is appropriate for use in plant cultivation. Biological waste from households, restaurants and food stores contains plant nutrients and other valuable substances. This easily biodegradable waste can, after biological treatment, be recovered and used for plant cultivation. This would afford several advantages compared with present-day landfilling, on the one hand, and incineration on the other. Phosphorus, an element that is a finite resource, could for example be included in a recycling process.