A Circular Economy
in the Netherlandsby 2050

A Circular Economy
in the Netherlandsby 2050Government-wide Programme for a Circular Economy

2 | A Circular Economy in the Netherlands by 2050

Contents
A Circular Economy in the Netherlands by 2050

5

1
Promising prospects
1.1 Changes in a broad sense
1.2 	Unifying theme in policy
1.3 International context
1.4 Structure

6
6
6
6
7

2
Raw material use: the great challenge of the 21st century
2.1 Necessity
2.2 Economic opportunities

9
9
10

3
Changing course
3.1 Vision
3.2 Strategic goals
3.3 	Generic Policy (for change): removing obstacles
3.4 Cooperation
3.5 	Specific policy (for change): approach for each sector or value chain
3.6 Direction and monitoring

13
13
13
17
18
21
22

4
Interventions
4.1 	Fostering legislation and regulations
4.2 Intelligent market incentives
4.3 Financing
4.4 Knowledge and Innovation
4.5 International Cooperation

23
23
27
30
31
36

5
Priorities
5.1 Biomass and food
5.2 Plastics
5.3 The manufacturing industry
5.4 Construction sector
5.5 Consumer goods

43
43
49
53
58
63

Government-wide Programme for a Circular Economy | 3

4 | A Circular Economy in the Netherlands by 2050

A Circular Economy in
the Netherlands by 2050
The Government-wide programme for a Circular Economy isaimed at developing a circular economy in the Netherlandsby 2050. The ambition of the Cabinet is to realise, together
with a variety of stakeholders, an (interim) objective of a
50% reduction in the use of primary raw materials(minerals, fossil and metals) by 2030. With this objective forthe use of raw materials, the Netherlands sets its ambitions
at a level adopted in comparable countries.1
The Cabinet wants to outline a vision of a future-proof,
sustainable economy for us and for future generations. In
concrete terms, this means that by 2050 raw materials will
be used and reused efficiently without any harmful emissions
into the environment. In case new raw materials are needed,
they will be obtained in a sustainable manner and further
damage to social and physical living environments andpublic health will be prevented. Products and materials will
be designed in such a way that they can be reused witha minimum loss of value and without harmful emissions
entering the environment.

Through the Government-wide programme, the Cabinet is
implementing the Çegerek/Dijkstra motion that requested
the Cabinet to come up with an overarching programme forthe circular economy.2 We are meeting this request, as wellas various other motions and promises (see Appendix 1),
with this programme. It is also our response to the recently
adopted advisory report of the Social and Economic Councilof the Netherlands (SER)3 and the advisory report by theCouncil for the Environment and Infrastructure (Rli).4
In developing this programme, we have benefited from theknowledge, insights and suggestions of a range of different
parties from society. To accelerate the transition to a fullyfledged circular economy, the efforts of all parties involved
are needed and will remain so throughout the entire
process. After all, each party – ranging from local govern­ments to social partners and citizens – has unique inter­
ventions to offer. The Cabinet will use this programme as
the starting point for further cooperation. The Governmentwide programme presents the commitment of this Cabinet
for the steps to take from now to 2020.

This programme contains the current steps and sets a course
for the subsequent steps to be taken on the way to 2050.
With this programme, the Cabinet takes responsibility for
setting actions in motion that are aimed at achieving thisgoal. In addition to its role as market regulator and network
partner, the Cabinet wants to promote the transition toa circular economy with its eye on promising prospects anda system approach. Special emphasis will be placed onorganising the course to be taken, on management and on
everyone’s responsibilities.

1

European Environmental Agency: More from less – material resource
efficiency in Europe, 2016

The Minister for the Environment
Sharon A.M. Dijksma

The Minister of Economic Affairs
H.G.J. Kamp

2

Parliamentary documents II, 34 300 XII no. 27

3SER, Werken aan een circulaire economie: geen tijd te verliezen [Working
towards a circular economy: no time to lose], 2016

4

RLI, Circulaire economie: van wens naar uitvoering [Circular economy:
from aim to implementation], 2015

Government-wide Programme for a Circular Economy | 5

1Promising prospects
1.1 Changes in a broad sense
The circular economy provides an answer to the greatchallenge of the 21st century, which is to utilise raw materials
with much greater efficiency. In order to continue feeding
humanity, provide it with the necessary goods and toguarantee people a decent existence, a fundamental change
in how we use raw materials is necessary. We are talking
about an economy that provides for people’s needs without
placing an unacceptable burden on the environment andwithout exhausting natural resources. This challenge will
require the introduction of changes in a broad sense.
Technological, social and system innovations will have to be
implemented.
This transition presents economic opportunities to theNetherlands. It will make the Netherlands less dependent
on the import of scarce raw materials and will contribute toa cleaner environment.5 In a circular economy, we will treat
products, materials and resources within the earth’s
capacity to provide them and in an efficient and socially
responsible manner so that future generations can retain
access to material prosperity.6 Many parties in society are
already making a contribution to achieving a circular
economy and are asking the government to do its part.
They recognise that, by being careful about our raw
materials, we will be able to continue to live, work andrecreate in the future, both here and in other parts of theworld, in a healthy and clean environment with a strong
economy.

1.2 	Unifying theme in policy
The ambition of the Cabinet and the wishes of the House ofRepresentatives are developed in this Government-wide
programme for a Circular Economy. The programme,
streamlines and coordinates current policy paths. For

5

6

PBL, Waarom een circulaire economie? [Why a circular economy?]
http://themasites.pbl.nl/circulaire-economie 2016
See footnote 3.

6 | A Circular Economy in the Netherlands by 2050

example, the elaborations of the Biomass Vision for 2030
(Visie Biomassa 2030)7 and the Raw Materials Memorandum(Grondstoffennotitie)8 have been incorporated into thisprogramme. The programme builds on the green growthprogrammes From Waste to Resources (Van Afval Naar
Grondstof - VANG), which is aimed at using raw materials ina more sustainable manner, and Biobased Economy, which
is focused on the transition from fossil-based raw materials
to biomass as a raw material. The goals and ongoing actionsof these programmes are reflected in the document at hand.
The programme also ties in with the policy to foster a healthyand safe living environment. In addition to creatinginterconnectivity in the current policy, the programmecomprises proposals to accelerate the necessary transition
to a circular economy. The programme furthermore expands
the approach into areas such as food, construction, finances,education, and the labour market. Finally, the programme
indicates what must happen at different scale levels –internationally, nationally, as well as regionally and locally.

1.3 International context
The transition to a circular economy is an international
challenge. According to the UN, the increasing consumption
brought on by the rapid growth of the middle class world­
wide means that, in the last four decades, the amount of
raw materials that humans have extracted from the earth
has tripled.9
At the European level, the European Commission set out
an action plan and a package of legislative proposals on
2 December 2015 to move from “waste” to “raw material”
and to push the circular economy forward.10 As Presidentof the European Council, the Netherlands has placed theaction plan and the package of legislation on the agenda of

7

Parliamentary documents II, 33 043, no. 63

8Parliamentary documents II, 32 852, no. 1

9

UNEP IRP, 2017: Global material flows

10

European Commission, Closing the loop – An EU action plan for the
Circular Economy, 2015

the Council. The Circular Economy package of theCommission and the Council’s conclusions11, which were
specified in the Environmental Council meeting of 20 June
2016, form an ambitious European policy agenda. The
Netherlands wants to contribute to realising thisagenda and, to this end, has put forth activities in the
Government-wide programme.
UN Sustainable development goals
At the global level, the UN reached agreements last year on
new global goals for sustainable development: theSustainable Development Goals (SDGs). Seventeen goals were
formulated – and divided into secondary goals – in which
the circular economy is addressed in different ways:• Promote continuing, inclusive and sustainableeconomic growth, full and productive employment anddecent work for everyone (e.g., by decoupling economic
growth from environmental degradation);• Promote sustainable industrialisation and innovation(e.g., by adapting industries in order to make themsustainable, with a focus on greater efficiency in the useof resources and cleaner and environment-friendly
technologies and industrial processes);• Make cities and human settlements inclusive, safe,
resilient, and sustainable (e.g., through inclusive andsustainable urban development and building capacity
for participative, integrated and sustainable planning);• Ensure sustainable production and consumption (e.g.,
reducing global food waste by half, through sustainable
government assignments and sustainability education);• Conserve and make sustainable use of the oceans, theseas, and maritime resources (e.g., by preventing
marine litter);• Protect biodiversity and ecosystems (e.g. by integrating
ecosystem and biodiversity values into national andlocal planning and into development processes).

Four describes the general interventions that the Cabinet
intends to apply.. Finally, Chapter Five describes theambitions, goals, and efforts for the priorities that will be
addressed first.

The SER advisory report
The Cabinet asked the SER for its recommendations toserve as input for this programme. They particularly
asked the SER to give its view of how the different parties(including the government and social partners) could
better anticipate the transition to a circular economy.
They also asked subsidiary questions about promoting
innovation, about new business models and about therole of employment.
In its recommendations, the SER endorsed the urgency
and necessity of redirecting the character of our economy
in the direction of a circular economy and the importanceof a Government-wide programme in this area. The SER
recommends that the programme be developed intoa transition agenda that has concrete goals andtransition paths. The SER would like to lend its
assistance in this regard. The SER recommends the
programme to pursue three paths:• anticipate risks, obstacles and opportunities of thetransition;• develop a policy framework that anticipates thetransitional phase of the supply chain;• develop an integral assessment framework for the
choice of priority value chains.
Finally, the SER advises the Netherlands to becomea worldwide leader in certain supply chains.

In the transition to a circular economy, the Netherlands iscontributing to the realisation of these Sustainable
Development Goals.

1.4 Structure
The reasons why the transition to a circular economy isimportant and what opportunities it presents to our country
are explained in Chapter Two. Chapter Three sets out theambitions and vision of the Cabinet in more detail, andoutlines the transition strategy the Cabinet intends to use torealise this ambition. The chapter also indicates how the
programme will be monitored and administered. Chapter

11

Council of the European Union, Council conclusions on the EU action
plan for the circular economy, June 2016

Government-wide Programme for a Circular Economy | 7

interview

Low-energy lighting,with re-used materials‘The world is changing rapidly and requires more ­low-energy lighting. Population growth and urbanisation
generate an increasing demand for resources and energy,
which results in climate change. This calls for an alternative
approach to the use of our energy sources and materials.’‘Lighting accounts for a substantial proportion of global
power consumption and thus has a significant impact on
CO2 emissions. The good news: the technology toconsiderably reduce that share in the years ahead isalready available. Low-energy, smart LED lighting uses up
to 80 percent less power compared to traditional
incandescent lamps. Philips Lighting and the UN have thejoint ambition to reduce the lighting share in global power
consumption (still 15% in 2014) to a maximum of 8 percent
by 2030.’

Leon Konings
Sustainability Professional Philips Lighting
8 | A Circular Economy in the Netherlands by 2050

‘Hence the introduction of “Circular Lighting”. A service
involving a monthly fee, rather than having customers
invest in lighting and maintenance. The modular structure,
without an investment threshold and at lower costs,
ensures long-term efficiency in the maintenance of thesystem – which incorporates the latest technology. Thus,
we save energy – together with the customer – while
making responsible use of resources. In short: replacing“property” by “use”.

‘Replacing property by use.’‘The collaboration between governments, companies,
science, civil society organisations, and consumers is themainstay of our success. These things start with trust andthe shared conviction that we need to take action together
in order to keep this planet habitable. The government
plays a leading role in this respect: it must encourage
innovations and create sufficient scope for incorporating
circular principles and thus the re-use of materials into
existing legislation.’

2
Raw material use:
the great challengeof the 21st century
materials, and climate change. A further increase in the
demand for raw materials will thus exacerbate environ­mental, climate-related, and other sustainability issues.

2.1 Necessity
The necessity to strive for a circular economy comes froma concurrence of three developments.
1) Explosive demand for raw materials

	The most significant issue is the explosive rise in the
demand for raw materials during the last century: theEarth’s population started using 34 times more materials,
27 times more minerals, 12 times more fossil fuels and3.6 times more biomass.12 This increase is illustrated in
the figure below. The demand for raw materials willfurther increase as a result of global population growth(from more than 7 billion to 9 or 10 billion world citizens
by 2050), the rapidly growing middle class in emerging
economies, and the application of new technologies that
require specific raw materials. For example: rare earth
metals for batteries, dynamos and electric motors. This
growth is not sustainable. Apart from the higher
environmental impact, it will also involve increasing
damage to and exhaustion of natural capital13, a loss of
biodiversity, a risk of exhausting the supply of raw

12

See footnote 3.

13

Natural capital is the world’s stock of natural ecosystems that
produce a stream of valuable products and services, now and in the
future. It is an extension of the economic notion of capital(manufactured means of production) to include the products andservices that the natural environment produces. For example,
a forest or a fish population may produce an indefinitely sustainableflow of new trees or fish. Natural capital can also provide services,such as breaking down pollutants, water catchment, and erosion
control. The flow of services from ecosystems requires sucha system to function properly at full force. (source: Wikipedia)

2) Dependency on other countries	Another point is the fact that the Netherlands and Europe
are dependent on third countries to a high degree for raw
materials. Of the 54 materials14 that are critical for
Europe, 90% must be imported, primarily from China.
The Netherlands imports 68% of its raw materials fromabroad.15 This dependency is illustrated in the figure
below. The relatively limited availability of these raw
materials will lead to (more) geopolitical tensions. That,in turn, will impact on the price of raw materials and the
security of supplies, and thus on the stability of the Dutchand European economies. This development can also
lead to an increasing disparity in access to raw materials,
whereby the poorest population groups will have thegreatest disadvantages. This will affect the (non-)achievement of the Sustainable Development Goals(SDGs).

14

Scarce raw materials that are essential for certain industrial tasks
and whose supply security is low.

15

CBS, Environmental accounts of the Netherlands, 2011
Government-wide Programme for a Circular Economy | 93) Interconnectivity with the climate (CO2 emissions)	The extraction and use of raw materials has a negative
effect not only on the environment and natural capital.
It also makes a considerable contribution to theconsumption of energy and the emission of CO2.
The urgency with which we need a circular economy isunderlined by the recent Climate Agreement concluded
in Paris, in which countries commit themselves tolimiting global warming to less than 2 degrees Celsius,with the goal of limiting it to 1.5 degrees C. Between the
climate policy and the circular economy, contradictions
can also occur. For example, the use of critical metals orbiomass for the generation of energy. It is therefore
important to monitor the coherence between the two.

The developments outlined above necessitate a more
efficient use of raw materials and their substitution bysustainably produced, renewable, and generally available
raw materials. Even if the economy responds to a scarcity ofsupply, the social and environmental consequences will behigh because, in its utilisation of natural capital, humanity
has now already far exceeded the capacity of the earth. To
continue to feed humanity, supply it with the necessary
goods, and to guarantee a decent existence, a fundamentallydifferent handling of raw materials is necessary. This calls
for an economy that meets the needs of people without
having an unacceptable impact on the environment andwithout exhausting natural resources. It requires not only
a relative decoupling of raw material use from economic
growth, but also an absolute decoupling of economic
growth from environmental impact.16 Safeguarding natural
capital with a view to supply security and sustainability isa precondition for this. It presents an enormous challenge,
but not an impossible one. The circular economy thus
provides an answer to the major challenge we face in the
21st century, which is to handle raw materials with muchgreater efficiency.

2.2 Economic opportunities
Jobs and benefits
The circular economy also presents our country with plentyof (economic) opportunities. Innovation creates
opportunities for existing businesses, for newcomers ­16

UNEP International Resource Panel, Decoupling Natural Resource
Use and Environmental Impacts from Economic Growth, 2011

Worldwide resource extraction in billions
of tonnes, 1900-2005
Resource extraction
Billions of tonnes

GDP
Thousand billion USD

100

50

80

40

60

30

40

20

20

10

0
1900

1910

1920

1930

1940

1950

Source: Krausmann et al., 2009 published in
Decoupling Natural Resource Use and Environmental Impacts
from Economic Growth, by UNEP/International Resource Panel

10 | A Circular Economy in the Netherlands by 2050

1960

1970

1980

1990

2000

0

Ores and industrial minerals
Fossil-based fuels
Construction materials
BiomassGDP(start-ups), and for science. It also generates new export
possibilities. Dutch knowledge and expertise provide
solutions to scarcity issues elsewhere as well, and cancontribute to sustainable development and the expansionof markets.
The circular economy can thus make a significant
contribution to the future earning capacity of theNetherlands and Europe. The Netherlands has a goodstarting position to capitalise on these opportunities: it has
a good infrastructure, major ports and airports, and leadingbusinesses. Strong sectors include the chemical industry,
the agri-food sector, high-tech systems and materials,
logistics, the creative industry, and recycling.
European cooperation can help us to capitalise on thisleading position internationally. The Netherlands leads theway when it comes to the biobased economy and theutilisation of Nature Based Solutions that reduce the use of
raw materials.

The Netherlands Organisation for Applied Scientific
Research (TNO) has made an initial estimate of the benefits
that a circular economy would bring to the Netherlands.
Among other things, it states that each year, within the
sectors involved in the circular economy, an extra turnoverof € 7.3 billion can be generated, which will account for
54,000 jobs in the Netherlands.17 The use of raw materials
can be reduced by approximately 100,000 kilotons(one-fourth of the total annual import of raw materials in
the Netherlands).18 In an exploratory scenario study19, theRabobank has estimated that a circular economy can lead to
extra growth in GDP ranging from 1.5 billion euros (ina business-as-usual scenario) to 8.4 billion euros (in themost circular economic scenario).

17

TNO, Kansen voor een circulaire economie in Nederland [Opportunities fora circular economy in the Netherlands], 11 June 201318

The TNO calculations should be seen as exploratory and indicative,
because not all relevant economic effects have been mapped out.
(SER, 2016)19

Rabobank, De potenties van de circulaire economie [The potential of thecircular economy], 2015

Dutch design is setting trends internationally. We intend to
take a leading role for circular design as well.

Production concentration of critical mineral materials
Europe is dependent on other continents

CanadaIndia

United States

RussiaMexicoJapan

Graphite

CobaltBeryllium

Platinum group metals
IndiumFluorspar

Brazil

Niobium
Tantalum

South Africa

Platinum group metals

Democratic Republicof Congo
CobaltTantalum

RwandaTantalum

China

Antimony
Beryllium
Gallium
Graphite
Germanium
IndiumMagnesium
Rare earth minerals
Tungsten

Source: European Commission, 2010

Government-wide Programme for a Circular Economy | 11

It is expected that it could bring the European Union
economic growth worth 550 billion euros and could
produce 2 million new jobs.20
In addition to these positive possibilities, it should be said
that a circular economy would also lead to declines in some
sectors: the closure of loops in industrial sectors could
result in a decline in the waste-processing sector.21
CO2 reduction
A more responsible use of raw materials also fits in withthe climate policy. The annual emissions released in the
Netherlands are close to 200 megatons of CO2eq. An
improvement in efficiency in raw material and materialvalue chains could cut this by approximately 17 megatons of
CO2 a year22 (which is 9% of total Dutch emissions) and thus
make a contribution to achieving the climate objectives.
The Circle Economy and Ecofys have explored the contri­
bution that a circular economy could make to achieving theclimate goals agreed to in Paris. Based on existing literatureand their own calculations, they state that worldwide, byimproving material efficiency alone, the current gap
between the promised measures for CO2 reduction and theobjective of limiting the maximum rise in temperature to
1.5 degrees can be narrowed by half by 2030.23
At the same time, nature-based solutions for climate
mitigation and adaptation help to reduce the demand forprimary raw materials and promote the transition to
circularity. Securing natural capital will thus contribute tosolutions in both domains.
The realisation of climate and energy goals will increase thedemand for some raw materials for renewable energy
technologies (generation, storage, and transport). A circular
economy is also important to meeting this demand.

20

Ellen MacArthur Foundation, Growth Within: a Circular Economy
Vision for a Competitive Europe, 2015

21

PBL Balance of the Living Environment, 201622

As shown by the road maps for Multi-year Agreements on Energy
Efficiency (MJA). In the road maps of the service sectors, industrial
sectors, and the food industry, the business community sets out theambitions for a route to climate-neutrality by 2030. RVO,
Routekaarten en Voorstudies MJA3/MEE.

23

Ecofys & Circle Economy, Implementing Circular Economy Globally
Makes Paris Targets Achievable, 201612 | A Circular Economy in the Netherlands by 2050

Safe and sound
Substances influence people and nature in different ways.
The goal of the policy on substances is to reduce exposure
to substances that damage health or harm the functioningof ecosystems. Substances are added to products because
they improve the quality of those products, despite theiradverse effect.
The circular economy is good for public health and ourenvironment. Designing products in such a way that they
can be fully reused and recycled or can be safely released
into our environment as ecologic raw materials will also
provide social benefits. By preventing pollution withcircular products and services, we will save money spent onwater purification and, over time, save on the costs ofclean-up and health. The fact that this can yield not only
an environmental benefit, but also an economic benefit isdemonstrated by the Dutch invention of dying textiles with
CO2. This invention is now increasingly being used by textile
and shoe producers worldwide. This method replaces water– traditionally used in the dying process – by CO2. This
reduces raw material requirements, cuts back the use ofwater, energy, and chemicals, and eliminates the cost of
purifying wastewater to be released. Compared with thetraditional dying methods, this Dutch invention reduces theconsumption of energy by approximately 60%. The factories
that now use these technologies have reduced their carbon
footprint by a quarter and have also reduced the dying timeby 40%.

3
Changing course
The ambition of the Cabinet is to realise a circular economy
by 2050. This means that the preservation of natural capitalwill be taken as a starting point in the economic system,
such that renewable and generally available raw materials
are used wherever possible. To that end, raw materials are
optimally deployed and (re-)used without any risks forhealth and the environment, and primary raw materials,
insofar as they are still needed, are extracted in a sustainable
manner. In 2050 the circular economy must be a reality. This
will continue to give future generations access to material
prosperity. The ambition of the Cabinet is to realise, together
with a variety of stakeholders, an (interim) objective of a
50% reduction in the use of primary raw materials (minerals,
fossil and metals) by 2030. With this objective for the use of
raw materials, the Netherlands will raise its ambitions tomeet the level adopted in comparable countries.24 By 2020,
the Cabinet will have taken a major step in accelerating thepace of the transition to a circular economy.
In this chapter, the Cabinet explains its vision, strategy andgoals for achieving this ambition.

3.1 Vision
The transition involves a shift from “take, make and waste”
to a system that uses as few new raw materials as possible.
The basic idea behind the transition is shown in the
diagram below. In the diagram, three economic models are
identified, each of which has a different starting point withrespect to its approach to the use of raw materials: thelinear economy, the reuse economy and the circular
economy.25
In many sectors, the Dutch economy is already on the way
to becoming a circular economy and can primarily beclassed as a reuse economy: the amount of waste is falling24

See footnote 1.

25

Based on the EU consultation Circular Economy for member states,
sent to the House of Representatives and the European Commission
on 19 October 2015 (appendix to Parliamentary documents II, 22 112,
no. 2009) https://zoek.officielebekendmakingen.nl/blg-602632.

as the economy grows and waste is being reused to an everincreasing degree. Although the need for raw materials is
being stemmed, the capacity of the earth to provide them isstill being exceeded and the supply security of materials andraw materials is decreasing.
The Netherlands Environmental Assessment Agency (PBL)
notes that: “The idea of the circular economy as a fully
closed system is a mobilising ideal image. The use of
primary raw materials and the creation of residual streams
can probably never be completely avoided. This has to dowith those raw materials that are necessary for countries
that are still building up their infrastructure, and with thefact that some of the use of raw materials is inherently
linear, e.g., for energy and food.”26
There are also limits to the reduction of material require­ments with continual global economic growth.27 This
underpins the necessity of continuing to focus on thesustainable acquisition of raw materials and on thepreservation of our natural capital in order to provide
future generations with raw materials as well.
Although the circle will never be entirely closed andabsolute decoupling at the global level seems to be feasible
only in the very long term, this programme is focused on
this decoupling of growth and material use, and on a system
in which the sustainable extraction of raw materials and thepreservation of natural capital are guaranteed.

3.2 Strategic goals
The transition to a circular economy requires a transfor­
mation in the way we use raw materials. To transform theDutch economy into a circular economy at an accelerated
pace, three strategic goals have been formulated in the
Government-wide programme:

26

See footnote 5.

27

Prof. Dr Arnold Tukker, In kringetjes vooruit. De circulaire economie als
recept voor duurzaamheid [Progressing in circles. The circular
economy as a recipe for sustainability], 2016

Government-wide Programme for a Circular Economy | 13

interview

Skateboarding onplastic bottle caps
‘Plastic Whale, the organisation that retrieves plastic fromrivers and canals, and uses it to build nice boats to fish formore plastic, came up with the idea of making skate­boards out of plastic bottle caps. We succeeded after a lotof research and tests, in collaboration with students from
Amsterdam University of Applied Sciences. This is how the
WasteBoards came into being. ‘‘This summer we attended several dance and music
festivals with a cargo container, converted into a mobile
bakery. By arranging 750 different-coloured and differentsized bottle caps in a particular pattern in the mould, we
created beautiful and unique WasteBoards. It is not only
cool to watch these boards being made; it is also a very
good way to raise awareness among the festival crowd:
waste can be a valuable resource for beautiful products.’

Jonathan Morrison
Chef WasteBoards Bakery
14 | A Circular Economy in the Netherlands by 2050

‘As a former professional skater, I know what requirementsa good skateboard must meet. Contributing to resolving
the plastic waste issue is inspiring and gratifying. That is
why I quit my job in order to fully focus on WasteBoards.’‘... waste can be a valuable
resource for beautiful
products.’‘Our mission is to tackle plastic waste at the global level aswell. And in addition to encouraging local activity andemployment opportunities, we aim to set up mobile board
bakeries across the globe, anywhere where there is a lotof waste. We have already established the first contacts in
Manilla, Rio, and Mumbai. We are raising awarenessand encouraging local entrepreneurial spirit in a positiveand relevant manner. Our ultimate goal, of course, is to
get rid of all plastic waste in the world; we’re in business togo out of business!’

1 Raw materials in existing supply chains are utilised ina high-quality manner.
This increase in efficiency can lead to a decrease in the
demand for raw materials in existing supply chains.
2 In cases in which new raw materials are needed, ­fossil-based, critical and non-sustainably produced
raw materials are replaced by sustainably produced,
renewable, and generally available raw materials.
Apart from biomass, generally available raw materials are
the raw materials that nature needs for life (iron, silicon,carbon, magnesium, sodium, potassium, calcium,
nitrogen, oxygen, phosphorus, sulphur, hydrogen).
This preserves our natural capital and enables us to makeour economy more future-proof and less dependent on(the import of ) fossil sources.

3 We develop new production methods, design new
products and organise areas differently. We also
promote new ways of consumption.
This leads to different supply chains that give additional
impetus to the desired reduction, replacement andutilisation.
As these goals are achieved, the manner in which material
streams are used and organised in the Dutch economy willradically change over time.

From a linear to a circular economy

Raw materials

Productiong

Production

R

Use

Use

Non-recyclable waste

From a linear to a circular economy• In a linear economy, raw materials are
extracted from the earth, used anddiscarded: “take-make-waste”.
At best, this economy leads to therelative decoupling of economic
growth from the use of natural
resources.
• In the reuse economy, many
non-recyclable materials are used

Circular economy

R a w m a t e ri a l s

Produ

Recycling

Raw materialscec y l inReuse economyonctiLinear economy

Use

Non-recyclable waste

again (cascading, repair/maintenance,reuse, remanufacturing, recycling).
At best, this reuse economy leads inpart to an absolute decoupling of
economic growth from the use ofnatural resources and from emissions:the demand for natural resources andthe emissions decrease as the
economy grows.

• The ideal picture is a circular economy
in which raw materials are neverdepleted. This economy can be
structured so that there is a positive
coupling between economic growth
and the growth of natural resources(“negative” emissions / positive
footprints). In a circular economy, value
chains will be organised differently.

Government-wide Programme for a Circular Economy | 15

interview“Easy to repair” asa standard requirement‘In order to continue to meet our demand in the future, weneed to convert to a circular system, in which resources arepreserved and continually re-used. Wastage of valuable
products and materials grieves me: I think that’s a shame.
I intend to make an effort to reduce the amount of waste
we collectively produce. By encouraging everyone to repair
things or have them repaired when they are broken, andby encouraging manufacturers to improve the repairabilityof their products. That is why I devised the Repair Café.
Manufacturers will only start making products that can be
repaired more easily if this is financially attractive forthem. This requires support from the government. For
example, by extending a manufacturer’s responsibility forthe proper functioning of a product. If a producer isrequired to give, for example, a five-year rather thana two-year guarantee for his products, it will be in his own
interest to ensure that the item will not break down within
five years. And that it can be easily repaired if it should
break down anyway.

Martine Postma
Repair Café foundation
16 | A Circular Economy in the Netherlands by 2050

We hope that in five years’ time there will be morevolunteer groups organising a Repair Café in their own
neighbourhood once a month or once a week. We also
expect that within five years “easy to repair” will bea standard requirement to be met by product designs.

‘Wastage of valuable products
and materials grieves me:
I think that’s a shame.’
The Repair Café foundation is a not-for-profit organisation
receiving financial support from a number of private
funds. Our funding for the future is as yet insecure.
It would be nice if the government would also support us,
in order to enable us to continue our work. There is still somuch work to be done.’3.3 	Generic Policy (for change):
removing obstacles
Changing the economic structure
In order to change the Dutch economy to a circular
economy at an accelerated pace, both the economic
structure and the material streams within it must be
influenced and changed. This requires technical, social andsystems innovations. The models described in paragraph 3.2
constitute different phases on the way to a circular
economy, but in practice these phases often exist side byside. This may differ from one specific material value chain
to the next. For this reason, made-to-measure work andproper timing are important. In some situations, we mustbuild on the strength of the linear economy to capitalise on
economic advantages of scale and, at the same time, limit
negative external effects. In other situations, we muststrengthen the reuse economy by using materials andproducts in a more intelligent fashion and by making more
efficient use of facilities (sharing economy). Parallel to this,the challenge is to consciously and collectively create newcircular forms of consumption and production, such as
making the shift from possessing to using, the 3D printingof food, or the use of CO2 as a raw material.
The transition path to be chosen always requires an integral
consideration in which not only economic and environ­mental aspects are taken into account, but also otheraspects of welfare.
International approach necessary
The transition to a circular economy is by definitioninternational in nature because economies are becoming
increasingly intertwined and the Dutch economy is highly
dependent on international streams of raw materials. Our
businesses operate increasingly at a European and global
level. The circular economy can therefore not successfully
develop outside the European and international context.
This is especially true for European cooperation in thearea of legislation and regulations, and for strengthening
the market for secondary and renewable raw materials.
Yet in a wider context, too, international cooperation isnecessary to close supply chain loops, to internalise
environmental costs and achieve a level playing field, toprevent evasive behaviour, and to safeguard supply security.
Safeguarding a level playing field, in particular, as well as
preventing evasive behaviour, requires a balanced
assessment between what is nationally desirable and what isinternationally feasible.
Obstacles for a circular economy
This transition will not come about on its own. The Rli and
SER advisory reports indicate the obstacles that stand in theway. The most significant obstacles are summarised below:

Regulations

The current regulations still insufficiently target thetransition. This is because the focus is still too much aimed
at countering the damaging effects of waste and emissions,and too little at utilising the value of the raw materials.
External effects are not internalised

Sustainable products are often more expensive thannon-sustainable alternatives. This is because damage tothe environment and public health is still insufficiently
reflected in the price of raw materials and thus in the priceof products.
Lack of knowledge for technological, social and systeminnovations

Both entrepreneurs and financers are insufficiently aware of
the possibilities presented by new circular business models.
Knowledge is necessary to redesign production processes,
so that raw materials can be optimally reused. Knowledge isalso necessary for the development of sustainable
alternative materials for production.
Non-circular behaviour among citizens and professionals

This pertains to breaking through ingrained, non-circularbehaviour patterns among consumers, producers, andother organisations.
Coordination problem in supply chains

Parties in the supply chain must jointly tackle material
streams, beginning with product design and the choice ofraw material, and ending with recovering the usedmaterials. This currently happens to an insufficient degree.
Vested interests and investments made

These impede a transition, on the one hand, because
newcomers lag behind in market penetration, and, on
the other, because investments made can be exploited ata relatively low cost price. Attention must also be paid tothe position of employees in sectors that are going throughtransition.
Limited influence in the international playing field

Due to the great differences between countries, and theinterests of countries that export raw materials, the conceptof a circular economy is still not a widely shared ambition.
Inside the EU and outside it, the Netherlands is “only” oneof the players.
Five interventions
The aforementioned obstacles make it difficult forbusinesses, consumers and governments to take on theirrole in the transition to a circular economy. Some of theseobstacles can be removed by the government, in concert
with social partners. Through targeted interventions, theystimulate the desired transition.
Government-wide Programme for a Circular Economy | 17

The Cabinet has designated five interventions in which thegovernment, in its role or authority, influences thetransition:• Fostering legislation and regulations;• Intelligent market incentives;• Financing;• Knowledge and innovation;• International cooperation.
Good and mutual cooperation that is focused oninterconnectivity and timing can reinforce theseinterventions. If all parties in a specific sector or supply
chain decide to act in concert in order to counteract
negative effects, the transition can be accelerated. The
phase in the transition that specific supply chains findthemselves in also plays an important role in choosing themost appropriate type of intervention.28
These five interventions will be further elaborated in
Chapter Four.

3.4 Cooperation
Owing to its complexity, the transition requires new
approaches. Technological innovations are not sufficient tochange the system of the economy and the relationships
between market parties. Issues run straight across businesssectors and various scale levels. In designing a product, forexample, the period following the time when the product isused must be taken into account. This is why parties needeach other. It is important for public and private parties toseek possibilities to implement technological, social andsystem innovations from a shared vision and in partnership.
In their own supply chain or across sectors. Between
companies, knowledge institutions and NGOs: at the local,
regional, national and international levels. Step by step.
This joint transition requires a government that not only
acts as a market regulator, but also – when necessary – acts
as a director, steering the course and, as a network partner,
showing its commitment and actively cooperating withvarious stakeholders in product value chains, in sectors andat various scale levels from the position of its own added
value.

Examples of instances when the government has acted insuch roles are the Green Deals that have been concluded, as
well as other networks such as the value chain agreements
for the phosphate and plastic cycles, and the cooperation in
the approach taken to packaging. These examples show thatsuch cooperation can lead to accelerated, tangible social
results.
Scale levels
Through cooperation at different scale levels the Cabinet
wants to encourage initiatives at the national andinternational levels, as well as initiatives at the local andregional levels to reinforce one another. The Social andEconomic Council of the Netherlands (SER) also stresses
the importance of this cooperation.
The first City Deal and the first local value chain agreements
for the circular economy have been concluded, in which
regional governments, companies and knowledge institutes
jointly take initiatives, and in which the national
government collects their learning experiences and actively
contributes to the development of indicators formonitoring progress. This holds great potential due to theadditional management capacity of the local and regional
authorities, the close proximity of parties, the direct
relationship with the labour market and consumers, andbecause “loop closure” of some material streams iseffectively achieved at the regional level. City Deals area good instrument for forming coalitions with cities to put
the circular economy programme into practice through thelayers of government with related government efforts.
Spatial planning solutions

The Netherlands Environmental Assessment Agency (PBL)
indicates that spatial planning solutions can also contributeto the transition to a circular economy. This also comprises
the connection with the natural capital policy field.
Through business park management and urban planning,
companies in industrial parks can make use of one
another’s materials and residual streams, as shown in
Park20|20 in Haarlemmermeer. At the local level, loops arethen closed. Regional spatial planning policy offers greater
scope for supporting circular activities.
The Cabinet aims to develop projects with pioneering cities
for the adaptation of local area planning, such as
disconnecting rainwater collection in new construction andinstalling green roofs.

28

In transition literature, each large social transition can be divided
into four phases: a development phase with pioneers andfundamental research, a start-up phase with new applications andexperiments, an acceleration phase in which existing actors andsystems are put under considerable pressure by seasoned newactors and systems, and a stabilisation phase in which the work
method is institutionalised.

18 | A Circular Economy in the Netherlands by 2050

interview

Breaking out of thevicious textile circle‘Textile production takes a considerable toll on theenvironment. At the same time, a lot of clothing is
discarded because they are considered no longer of use.
Reblend (2013) develops, in collaboration with designers,
manufacturers, and brands, yarn made of 100% used
textile, and processes this into clothing and upholstery
fabrics.’‘Our aim is to establish
ourselves within five years asa brand marketing innovativecollections ...’
‘There is an extreme imbalance between the short life spanof textiles and the permanent impact these materials
have. We use mainly textiles that are no longer suitable forwear (70%) and process them in a smart process – without
the use of water or additional chemicals, which yields yarn
and textiles with a considerably better ecological footprint!’‘We are the first company in the Netherlands to examine
the production of recycled textile, in interconnection with
supply and demand. As a result, we are often held back by
the fact that we are still producing on a small-scale level.
By way of comparison: we have currently produced
6000 kg of textile, which is nothing compared to the300.000 to 400.000 kg produced annually by major
producers. Government tender procedures, for example,
in the event of sustainable procurement, also remaindifficult for us. We derive our added value from otheraspects.’‘Our aim is to establish ourselves within five years asa brand marketing innovative collections, made inco-creation with major and small labels: not creatinga hallmark, putting up machinery, or spinning our own
yarn, but rather forming an umbrella label interconnecting sustainable development, projects, andprocesses: “re-think, re-use & re-connect”. Actually
breaking out of the vicious circle. That is our intention.’

Anita de Wit
co-founder of Reblend
Government-wide Programme for a Circular Economy | 19

interview

100% zero emissions
with quiet and efficientdrive‘With our buses division, we have been pursuing smart
and sustainable mobility for quite a while, by manu­
facturing electric public transport buses. Initially in theform of pilot projects, but in recent years we have been
the first to upscale to major projects in Western Europe.
Meanwhile, we have various basic vehicles. This year, ourhydrogen buses will take to the road in Eindhoven.
Next year, we will introduce our first electric truck, initiallya fully electric 37-ton tractor with a range of 100 to 120 km,
mainly intended for urban distribution and shop supply
deliveries. At a later date, a hydrogen version will become
available with a range of 350 to 400 km. In addition, we
will bring out an electric delivery van. All vehicles are 100%zero emission and equipped with a quiet and efficientelectric drive.

Menno Kleingeld
CEO, VDL Group20 | A Circular Economy in the Netherlands by 2050

‘Next year, we will introduce
our first electric truck.’
In addition to these electric vehicles in the Netherlands
and Belgium, we are focusing on other issues that are
essential to enabling electric transport. For example, VDL
will be able to supply charging infrastructure solutions
through its partners. We are also working on energy
storage (buffering, peak shaving, load shedding) in largescale battery systems and related smart grid solutions.
Eventually, these energy storage systems could be
provided with used battery units from electric vehicles.
Furthermore, we have plans to bring battery assembly to
the Netherlands, because of the growing demand for large
battery units for our own vehicles, energy storage systems,
and delivery to third parties, and also on account of
increasing delivery times and transport costs of batteries
from Asia. In addition, command of battery technology
and battery systems for heavy electric transport is crucial
to retaining know-how and jobs in the Netherlands.’

Spatial economic development

Local and regional circular initiatives

For the development of a number of circular economic hubs
in the north wing of the Randstad (Port of Amsterdam,
Schiphol Airport, Aalsmeer, AMS-IX), a collaboration wasrecently established between the national government andregional authorities under the name of Westas or West Axis.
The national government and regional authorities in thenorth and south wings of the Randstad and Brainport
Eindhoven signed a declaration of intent on 9 June 2016 to
establish a spatial economic development strategy(ruimtelijk-economische ontwikkelingstrategie, REOS).29
This collective strategy is intended to help these regions toremain internationally competitive.

Together with local governments and entrepreneurs, theCabinet intends to expand the number of repair andrecycling initiatives.

Digitalisation

The commitment to digitalise the economy is important.30
Through digitalisation, everything becomes connected,
such as intelligent infrastructure, energy networks, the“Internet of things”, and social networks. Digital platforms
and developments such as Blockchain make a sharing
economy possible. Further digitalisation and the develop­
ment of big data will enable a much more accurate, local,
and efficient organisation of processes and systems. This isdemonstrated, for instance, by the “smart cities, industry,
and mobility” developments, resulting in a much more
efficient use of raw materials and energy.
Toolbox for the regional level

The Cabinet will support a circular economy through spatial
economic policy that fits in with current initiatives. To
optimally deploy the strength of partnerships at various
scale levels within the Netherlands in the transition to thecircular economy, an integrated toolbox has been developedthat will actively be offered to stakeholders at the regional
level.
Change in transport

It is generally expected that the circular economy willchange transport patterns and the scope of these patterns in
the Netherlands, due to developments such as the sourcingof products and raw materials from the near vicinity (nearsourcing), the sharing economy, changing waste streams,
a decrease in the transit of primary raw materials, theincreasing importance of service and reverse logistics, andsustainable product value chain networks at different scalelevels. The regional network Noord4bio is an example of this.
This will have consequences for major ports and airports,
transhipment points, industrial sites, and other modalities
in the infrastructure. For example, the Port of Rotterdam ispreparing itself to become an international hub for biomass.

29

www.centre-for-sustainability.nl/uploads/cfs/attachments/
Oratie%20Tukker.pdf

30

The Digital Agenda, Parliamentary document 2016D28621, 5 July 2016

The National Sustainability Network (Rijksduurzaamheids­
netwerk), with 1,600 members from inside and outside thegovernment, will be deployed to support regional businesscases and to make new connections between parties at themunicipal, provincial and national levels.

3.5 	Specific policy (for change):approach for each sector orvalue chain
In addition to a generic approach, the transition to a circular
economy calls for a change strategy specifically geared toeach sector or raw materials value chain31, i.e., to eachpriority. The programme is focused on five priorities thatare important for the Dutch economy, that have a large
impact on the environment, in which there is alreadyconsiderable social energy for the transition to a circular
economy, and that fit in with the priorities of the European
Commission. The five priorities are:
• Biomass and food• Plastics• Manufacturing industry• Construction sector• Consumer goods
The Cabinet supports the SER recommendations and has
the ambition of making the Netherlands the international
leader in the area of the circular economy in these sectors
and supply chains by 2020.
The strategic goals have been rendered operational for eachpriority in the form of concrete objectives. In this way, theCabinet has taken the first step for the transition agendas
and transition paths proposed by the SER. Each priority has
its own dynamics, stakeholders, regulations, and transition
phase. This is why the approach is differentiated for eachpriority.
Chapter Five sets out the five priorities in more detail.
Circular economy agreement and transition agenda per priority
With the approach outlined in this chapter, the Cabinet istaking the initiative to reach an agreement on circular
economy (grondstoffenakkoord), together with the social
partners, before for the end of this year. In this circular
economy agreement, the Cabinet aims to share the31

See footnote 3.
Government-wide Programme for a Circular Economy | 21

ambitions that have been recorded in the Government-wide
programme with the partners, and generally explore thebottlenecks that obstruct its realisation, including theinterim goal of 2030, while concurrently exploring relevant
solutions. The Government-wide programme presents theefforts by the Cabinet in support of the agreement.

scope of the goal, and the experiences gained. During thisprocess, consideration will also be given to any otherpriorities to be tackled, and to verify whether theorganisation by sectors and relevant supply chains needs tobe adjusted. The process will tie in with the monitoring
method and associated indicators being developed by the EU.

The circular economy agreement will be further developedfor each priority in transition agendas, in cooperation withthe relevant businesses and other social stakeholders.
In these agendas, concrete and accountable agreements
will be made on the way in which the parties involved willcontribute to achieving the aforementioned goals. The
objective is to complete these transition agendas before
the summer of 2017. This Government-wide Programme
explains the actions envisioned by the Cabinet. In this way,
the Cabinet will substantiate the motion put forth byÇegerek/Van Veldhoven, which requested to reachan agreement on circular economy.32

The Cabinet will inform the House of Representatives
annually via a progress report. This report will discuss boththe performance of the actions and the progress of thetransition. This monitoring process can capitalise on theexperience gained with the monitoring of Green Growth(Groene Groei), the From Waste to Resources (VANG)
programme, the Smart Regulation (Ruimte in Regels)programme, energy innovation, Green Deals, Biobased
Economy, Natural Capital accounting, and City Deals.

Supporting partnerships in networks
Cooperation within and between supply chains can be
improved. The same is true for cooperation on a regional
scale. Often the infrastructure for this is missing or isinsufficient, causing the cooperation to stall before it reallygets off the ground. This is why the Cabinet intends toprovide these types of networks with a little temporary
support through a value chain cooperation project subsidy.
The subsidy involves a limited financial contribution for,e.g., a facilitator that helps parties (including small andmid-sized businesses) to gather the correct knowledge andto exchange knowledge within and between networks inorder to quickly achieve concrete, shared results.

3.6 Direction and monitoring
For a good implementation of the programme, a steeringcommittee will be set up, made up of the national
government ministries involved and various stakeholders.
This committee will direct an innovative implementation of
the programme. A project group in which the same partiesare represented will operationalise the implementation.
Cross-sector steering of the transition agendas will ensurethat relationships between the priorities are addressed, inorder to prevent a compartmentalised approach to eachpriority.
Gradually, the government-wide programme, andparticularly the development of the priorities in transition
agendas, will be monitored and, when necessary, adjusted.
This will be effected on the basis of the transition phase, the32

Parliamentary documents II, 34 300XII, nr. 37.

22 | A Circular Economy in the Netherlands by 2050

To be able to measure what results have been achieved in allof these forms of cooperation in a uniform manner, theCabinet is taking the initiative of producing a measurement
protocol. This will also enable the progress made in thetransition to be measured in a consistent manner.
Measurable results will thus constitute the basis for further
action. This measurement protocol will be developed incooperation with the Netherlands Environmental
Assessment Agency (PBL) and Utrecht University.

4Interventions
To achieve these ambitions and to create good conditions
for the intended transition, the Cabinet will deploy five
instruments for the priority sectors, wherever such isnecessary and useful:
1. Fostering legislation and regulations;
2. Intelligent market incentives;
3. Financing;
4. Knowledge and innovation;
5. International cooperation.

4.1 	Fostering legislation andregulations
Legislation and regulations can promote, as well as hamper
innovation. Although the goal is to remove regulatory
barriers, the primary objective is to develop legal
frameworks that encourage innovation, promote dynamics,
and support investments.33 To remove barriers and toprovide room in the legislation to benefit a circular
economy is in line with the Cabinet policy of establishing
future-proof legislation that makes it possible to innovate
and anticipate societal initiatives.34

4.1.1 Barriers and opportunities
Legislation is still often based on current technology or
operate from the basis of linear insights. Legal frameworks
organise the market based on classical production sectors(foodstuffs, feed, cosmetics, chemicals). Collaboration
between production value chains and the use of residual
waste flows from other value chains will more likely result
currently to the build-up of obligations and compliance33This serves to respond to the Dik-Faber and Çegerek motion(Parliamentary documents II, 33 043, no. 61 (was 57)) in which thegovernment is asked to come up with a proposal for removing
barriers in laws and regulations that thwart the realisation ofa circular economy.

34

Cf. the Parliamentary memorandum Werken aan toekomstbestendige
wetgeving en een toekomstbestendig wetgevingsproces [Working on
future-proof legislation and a future-proof legislative procedure] of
6 July 2016, Parliamentary documents I, 33 009, no. 30, no. E,
Parliamentary documents II, 33 009, no. 30.

costs, rather than to integrated assessments in theenforcement chain. For innovative solutions, the legislation
should provide room by applying the principle of equivalentsolutions when new technologies are used and to create
room to experiment without any imprudent risks being
taken. That said, legislation can also serve as a driver for
innovation. By gradually scaling up the standards toestablish, say, full circularity with respect to emissions toland, air and water, companies will be forced to innovate
and adopt circular substances and technologies.
Definition of waste

Because residual flows that were seen as waste in the past
are more and more being used as raw material, we needa more targeted and coherent conceptual framework for
waste: when is it waste or not, when is it a by-product andwhen is it end-of-waste? A more critical assessment of thelabel “waste” is therefore necessary not only for residual
waste flows, but also for returned products (such as
products bound for repair, disassembly, or recycling).
International policy on substances (such as REACH, Stockholm
Convention)

The guiding principle of the policy on waste is to deal withraw materials as efficiently as possible by, inter alia, aiming
to recycle products and materials. The policy on substances
is intended to phase out so-called harmful substances in
products and materials. In the transition to a circular
economy, it is important to strike the right balance between
recycling raw materials, on the one hand, and preventing
the spread of harmful substances, on the other. Sometimes
products and materials that contain harmful substances canbe safely recycled by taking into account their intended use
in the future. In some cases, current legislation could
render safe recycling impossible, even though this can
reduce the environmental impact enormously by saving raw
materials and reducing CO2 emissions. For this reason, theCabinet is aiming to establish an assessment framework for
deciding, on a case-by-case basis, whether recycling or
removal is the best option.

Government-wide Programme for a Circular Economy | 23

The administrative obligations and financial guarantee that
the EU Waste shipment regulation requires for the crossborder transport of waste are reason enough for many
companies to decline to offer or use waste substances as raw
materials. Particularly in a country of transhipments like theNetherlands, companies tend to have to deal with trading
partners abroad when it comes to the purchase and sale ofraw materials. This bottleneck can be solved by removing
a substance’s waste status, when it is unnecessary, or byproviding made-to-measure assessment when
implementing the Regulation.

currently counts only to a very limited degree towards
achieving the emission reduction goals. There is a specificpolicy for the promotion of bioenergy and biofuels, but
hardly any policy for the chemical and material sectors. The
business case of many biobased initiatives in relation tofossil-based alternatives is negative, which makes it very
difficult for producers of renewable products and materials
to launch a market introduction and scale-up. The
Netherlands is aiming to reduce CO2 in all sectors. That is
why we are arguing at the EU level for policy that will
promote the reduction of CO2 in the chemical and materials
sectors.

Added value of the sharing economy is significant

4.1.2 Ongoing efforts

EC Regulation on shipments of waste

A more efficient utilisation of existing (capital) goods could
reduce the intensity of raw material use and the environ­mental impact. In this way, the sharing economy and thesale of a product as a service can contribute to the circular
economy. Easy access to a car when it is needed, forinstance, can convince people to get rid of their (second)car. The potential added value of shared use for the Dutch
economy is significant.35 An underlying trend for thedevelopment of a sharing economy is the shift that takes
place from the possession of goods to the possibility ofusing these goods without owning them. An economy thatuses fewer raw materials can still meet the demands ofconsumers, or even more. Consider services such as Spotify:
listening to music anywhere without CDs. Or Peerby, an app
that enables you to borrow something from someone inyour neighbourhood. Why buy a new electric drill when you
can borrow one from a neighbour that is not using his
via an app? After all, the hole in the wall, that is whatcounts. Of course, possible negative (rebound) effects will
have to be taken into account.
For shared use and providing a product as a service, there
are challenges to face with respect to legislation, incentive
arrangements, and tax frameworks. Uncertainty about theapplication of legislation may hamper the development ofsuch business cases.
Implementation and enforcement

Licensing authorities and inspectors are responsible for
applying the rules in a changing environment. Licensing
authorities and inspectors need new knowledge and newwork methods to utilise the existing room for manoeuvre inlaws and regulations for upcoming circular initiatives.
Integration of policy and management in the chemical andmaterials sectors

The benefit to the climate resulting from the use of biomass
and/or recycled raw materials in chemicals and materials

35

See footnote 17.

24 | A Circular Economy in the Netherlands by 2050

Smart Regulation programme

The Smart Regulation programme (Ruimte in Regels) runs up
to 2020. In this programme, the government cooperates
with entrepreneurs to look for greater room within current
legislation to promote sustainable innovations. The
programme was initiated following indications fromentrepreneurs who felt restricted by legislation whenplanning innovative investments. The Smart Regulation
programme delves into the nature and background of thesebarriers, brings the relevant parties together and helps themto search for solutions. Up to now, more than 80 barriers
have been removed, which has made it easier for companies
to run their businesses in a circular fashion.
These cases have helped identify the barriers described inparagraph 4.1.1. This programme will continue in the years
to come. In the period running up to 2020, the Cabinet will
strive to remove at least another 80 barriers.
Application of the concepts of “waste”, by-product” and“end-of-waste”

Capitalising on the possibilities for secondary raw materials
to shed the label of “waste” led to two ministerial
regulations in 2015. One is related to the end-of-waste
status of recycling granulate (stony material) and the otherconcerns the conditions for the by-product status, tailoredto the substance glycerine. Since then, efforts have shiftedto encouraging companies and governments to start
applying the concepts of “by-product” and “end-of-waste”
themselves. This is accomplished by providing informationand through discussions in meetings, as well as by means of
so-called legal rulings (opinions of the Ministry of
Infrastructure and the Environment concerning a specificcase given at the request of a company). This policy will begiven a significant boost in 2017 through an explanation of
the concepts of “waste”, “by-product” and “end-of-waste” inthe third National Waste Management Plan (LAP3).

Dealing with issues surrounding the definition of waste

In considering the change to the Waste Framework
Directive36, the Netherlands is arguing for clarification of
the definition of waste and enforcement of the regulation
for by-products and end-of-waste. The Netherlands is also
urging that the European Commission plays a facilitatingrole in issues surrounding the definition of waste andcooperation between the EU member states, as well as thetransition to a circular economy. This provides
opportunities over the coming years to further refine thedefinition of waste and thus also tailor the EU Waste
Shipment Regulation to circular activities.

4.1.3 Planned actions
Promoting circular revenue models

Current regulations are not always geared to new
relationships between those who supply and those who buy
products and services. This can be seen in initiatives involving
the provision of services rather than products. The Cabinet
intends to provide greater clarity on related tax and liability
aspects by analysing practical examples and, on this basis,
review whether amendment of the regulations is necessary
and desirable.
Room to experimentHarmful substances and recycling policy on the international
agendaInternationally, within an EU framework (European Council
conclusions, REACH committees) and within the frameworkof the Stockholm Convention (persistent organic pollutants)
and the Basel Convention (how subsequently to deal withthe persistent organic pollutants already in circulation), theCabinet has placed the interface between the policy on
substances and the recycling policy firmly on the agenda.
In this area, the Netherlands continually points out the factthat the large volume of material containing harmful
substances that is in circulation in society cannot and does
not, in practice, all need to be taken to waste incineration.
In some cases, it is better to focus on prevention and, withrespect to the substances already in circulation, on safe
recycling methods and applications, which will reduce theenvironmental impact through savings achieved in raw
materials and the reduction of CO2 emissions. At the review
of REACH in 2018, the Cabinet especially wants to focus on
preventing the use of harmful substances and on recycling
materials in circulation in cases in which this would not be
harmful.
“North Sea Resources Roundabout” Green Deal

On 3 March 2016, the International Green Deal “North
Sea Resources Roundabout” was signed. This is a public-private
partnership initiated by the Netherlands, comprising theUnited Kingdom, Flanders, France and the European
Commission. The goal of the partnership is to facilitate theuse and cross-border trade of recycled material, e.g., byharmonising quality standards and waste definitions, aswell as adopting a tailored approach to the implementationof the EU Waste Shipment Regulation. For three material
streams – compost, PVC, and bottom ashes – barriers andpotential solutions are being identified. A fourth stream
will soon follow: struvite (phosphate from sewage). In thisway, barriers present in regulations can be removed without
the need for EU-wide measures. The Cabinet is exploring
possibilities for new international Green Deals.

In follow-up to the European Council conclusions and therecommendations of the Social and Economic Council of
the Netherlands (SER), the Cabinet will create more roomfor experimentation within the framework of the Smart
Regulation programme (Ruimte in Regels) in order to support
circular initiatives in their development. It will do this bothin a physical sense (e.g., in spatial planning or in testing
facilities) and in the application of regulations (such as the
Crisis and Recovery Act [Crisis- en Herstelwet]).
Inspectorates and local and regional governments need
instruments to respond to circular initiatives that needroom to experiment.
Producer responsibility

The current responsibility of producers is based on the EU
Waste Framework Directive and currently applies toa limited number of product streams (cars, tyres,
electronics, packaging and batteries). The Ministry of
Infrastructure and the Environment has commissioned EY
to conduct a study into the options for applying producer
responsibility to new streams and the possibilities forstrengthening the instrument itself. EY has nameda number of product streams that are relevant for the
Netherlands (such as mattresses, nappies/diapers, textiles
and building materials). Also indicated is how producer
responsibility can be boosted: with incentives for circular
designs and the prevention of material use, high-quality
reuse, and upcycling.37
Next year we will explore how we can expand thesubstantiation of the current producer responsibility. The
Cabinet is considering agreements on the amount of
reusable (recycled or biobased) materials. In addition, theCabinet will foster a value chain approach to a number ofpriority streams, such as mattresses, nappies/diapers andtextiles, aimed at developing sustainable business cases.

37

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http://www.ey.com/NL/nl/Services/Specialty-Services/ClimateChange-and-Sustainability-Services/
EY-extended-producer-responsibility

Government-wide Programme for a Circular Economy | 25

An instrument that could be deployed to this end is theintroduction of producer responsibility (e.g., requiring
producers to take back discarded products).
Gearing standards to the circular economy

The setting of open standards can play a role in combination
with certification and standardisation. In collaboration withthe business community, the sectors, and NEN we areadapting the process in place for setting standards andissuing certificates. The process and the structures should
be adapted in such a way as to enable innovative small andmedium-sized businesses with their circular products andservices to make better use of them. This will further
implement the Dijkstra motion concerning the Dutch andEuropean standards and the realisation of a circular
economy.38 The House of Representatives has already been
informed about this.39 The Netherlands is making
a contribution to the efforts launched by the European
Commission to establish European standards for a circular
economy.
Promoting circular product design at the EU level and intransition agendas

In the European Council conclusions regarding the EU
Action Plan for the circular economy, the European
Commission is called on to tailor the Ecodesign Directive on
products to the relevant criteria for the circular economy
before 2020. This regulation pertains to aspects such as
product lifespan, reuse, repairability, renovation, andrecyclability. Along with other member states, theNetherlands will study how this European approach can besupported and accelerated. The Cabinet will monitor theestablished actions closely and will also conduct a study incollaboration with like-minded member states, with a view
to supporting and accelerating the process. The Cabinet
stresses the importance of tightening these regulations andintends to reinforce this by reaching agreements withproducers under which new products contain recycled or
biobased raw materials. Preferably, we will take steps to thiseffect within the framework of the transition agendas to be
developed jointly. The Cabinet will not exclude thepossibility, if it is necessary and effective, of making
a certain percentage of recycled or biobased material inproducts mandatory if it is unsuccessful in achieving thegoals at a sufficient pace in consultation with the value
chain parties.
Conducive interpretation of rules to promote dynamism

Some of the barriers experienced can be solved by adapting
European or national legislation. Other barriers are causedby differences in the interpretation of rules or by a lack of

information. In the future, we want to adopt a more flexible
approach to amendments of the National Waste
Management Plan so that we can anticipate the changes
required by the transition more quickly. The National Waste
Management Plan sets out the current policy on waste.
Enforcement study

One primary role of the government is to protect public
interests, e.g., in the areas of health, safety and theenvironment. In the transition to a circular economy,
oversight and enforcement will change. This coincides witha shift in emphasis from origin (waste/no waste) to thecharacteristics of a raw material (market for secondary raw
materials), as well as the more complex networks andcooperatives in the circular economy. This calls fora reconsideration of the knowledge, skill and capacity of
the inspectorate. New detection technologies and methods(such as IT applications) might be necessary to be able tocontinue intervening quickly, effectively and selectively.
Research will be conducted into the manner in which
cost-efficient oversight and effective enforcement cancontinue to be guaranteed.
Enforcement dialogue

In the development of their innovation or investments fora new product or process, companies often have insufficient
access to the implementers and inspectorate, even though
they are important partners in the realisation of theirbusiness case. Room for innovation thus requires thatenforcers are closely involved in the creation of legislation
and regulations and that they listen to the needs ofentrepreneurs. This fits in with the idea of the enforcement
dialogue, a dialogue between policymakers, inspectorate
and entrepreneurs, as was proposed by the Commission for
Sustainability Issues and Biomass (Commissie Duurzaamheids­
vraagstukken en Biomassa) in its advisory report on biomass inthe circular economy.40 An example of a platform with sucha work method is the aforementioned Green Deal, the North
Sea Resources Roundabout.
Use of Smart Regulation in priority sectors

Entrepreneurs often do not study the legal frameworks thatpertain to their new product or innovation until fairly latein the game. This entails risks of delay and unnecessary
tension with government policy. With regard to the fivepriority sectors and supply chains, the Cabinet intends toaccelerate the transition by better anticipating theopportunities, barriers and risks for innovative
entrepreneurs. For this reason, the Smart Regulation
programme (Ruimte in Regels) will actively look for the

40
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26 | A Circular Economy in the Netherlands by 2050

Commission for Sustainability Issues and Biomass (Commissie
Duurzaamheidsvraagstukken en Biomassa): Sustainable use andmanagement of biomass streams. 2016

barriers to innovation that arise in these sectors during thetransition. Studies will be conducted to this end andmeetings will be set up with entrepreneurs and othergovernment authorities.

4.2 Intelligent market incentives
Intelligent market incentives are meant to tackle
imperfections in the market and to encourage the market tomove in the direction of a circular economy throughtargeted price incentives and regulations. This intervention
is intended to promote the demand for recyclates andbiobased materials, to stimulate circular innovations andbusiness models, and thus reinforce the national andinternational markets for these types of raw materials.

4.2.1 Barriers and opportunities
Social costs in the price

The benefits and costs for nature and the environment are
not reflected or are insufficiently reflected in the price ofa product. As a result, these aspects do not yet play a role inpurchase or investment decisions. Assigning a value tothese social effects promotes the creation of closed-loop
circular business cases.

4.2.2 Ongoing efforts
MIA and VAMIL tax schemes

Tax schemes such as MIA (Milieu Investeringsaftrek Environmental Investment Rebate) and VAMIL (Willekeurige
Afschrijving Milieu-investeringen - Arbitrary depreciation ofenvironmental investments) give a significant boost toinvestments in environment-friendly operating assets. Bothschemes pertain to sustainable investments that produce
greater environmental benefit than is required by law.
The MIA and VAMIL schemes are now already important
instruments for realising the goals set out in the national
visions on fuel, the circular economy, and sustainableagriculture. The annual revision of the Environmental List
(Milieulijst) makes it possible to anticipate new sustainable
technologies quickly. The Netherlands Enterprise Agency(RVO) is currently shedding light on how existing
instruments such as MIA/VAMIL can be geared to circularinnovations. It is also exploring the advisability of schemes
aimed at the circular economy that promote the reuse ofrenewable and recyclable raw materials. Finally, greaterattention is being given to communication about theavailable set of instruments in order to raise awareness ofthe schemes among the target group.
Further expansion of waste disposal tax

There is a need for a market incentive that promotes
resource efficiency, because resource efficiency pertains toboth the sustainable and efficient use of raw materials andto the efficiency with which the raw materials are processed.

Starting from 1 April 2014, a waste disposal tax has been
imposed on the disposal and incineration of waste. The
reintroduction of the waste disposal charge has resulted ina manifest and immediate reduction in the volume of waste
deposited. As of 1 January 2015, this tax was expanded toinclude waste that is incinerated.

CO2 market incentive in the chemical and plastics sectors

4.2.3 Planned actions

Promoting resource efficiency

Producers of chemicals and plastics are pushing for the
integration of renewable energy and climate policies, using
a single parameter as the point of departure, namely CO2eq.
This is a calculation unit used to inter-compare how
different greenhouse gases contribute to global warming.
There is no market incentive for these sectors to use
renewable raw materials, even though their use would
contribute to replacing fossil carbon sources and reducing
CO2 emissions. This reduction does not play a role in theenergy policy.
More conscious purchasing by the government

In government procurement procedures, the impact thatpurchases have on the use of raw materials is considered
only to a limited degree. By setting requirements forgovernment purchases that mandate the circularity of
products and services, the government can encourage themarket to use circular production methods and thus bea significant advocate for the circular economy.

Actions aimed at contributing to the climate policy

To further substantiate the focus on a single parameter, i.e.,
CO2eq, in the circular economy policy, the following actions
will be taken:• Developing methodology for calculating CO2eq
reduction and its allocation in the biobased chemistry
and biobased materials value chains to achieve CO2
reduction after 2020;• Study into fossil carbon pricing. Learning from existing
experiences with CO2 pricing;• Commitment to accepting CO2eq sequestration inexisting and new forests (climate smart forestry) andproducts;• Incorporating the contribution raw materials make tothe prevention of CO2 emissions.
The Cabinet will ascertain whether the Netherlands should
expand the approach aimed at reducing CO2 to include raw
materials and the circular economy, among other areas, forthe period after 2020.
Government-wide Programme for a Circular Economy | 27

The Cabinet will return to this at the start of 2017 in theHouse of Representatives.
Phasing out subsidies that are detrimental to the circular
economyAt the national and European levels, the Cabinet will focus
on phasing out (tax) market incentives that have a negative
impact on the environment. A factor to be considered withrespect to every subsidy that promotes the use of new
products or the destruction of used products is whether thesubsidy benefits the circular economy or not. If the subsidy
does not promote the circular economy, alternatives should
be sought that do have this effect.

Harmonisation of existing sustainability frameworks

It is advisable to harmonise existing sustainability frame­works for biomass and to develop a single framework for all
raw materials, building on the existing sustainability
frameworks for biomass. To this end, a study will belaunched next spring that should give greater insight into
how we can accomplish further harmonisation.
True pricing in the food value chain

The Cabinet is committed to greater transparency in the foodvalue chain. In this context, it is studying the opportunities thattrue pricing offers, ascertaining the “real” costs of food, including
any external effects that can later lead to costs elsewhere.

European study into market incentives that promote a circular
economySocially Responsible Purchasing and innovation-oriented
purchasing

The Netherlands is initiating a study with a European
collaborative of interested member states to map out thepossibilities and impossibilities of market incentives for thecircular economy.

Together with other government authorities and businesses,
we will deepen and expand knowledge about circular
procurement and the inclusion of total product life cycles
and costs in tenders. At this moment, in the view of the
Cabinet, the single or short-term price of a product is still
too often the decisive factor for the selection of suppliers ingovernment tendering and procurement procedures. The
Cabinet aims to give more attention to integral life-cycle
costs, environmental performance and the social costs
during and after the life cycle of a product. It will boost
these goals by purchasing more circular and biobased
goods, thus creating or enlarging the market for sustainable
and circular products and services. In the memorandum on
Socially Responsible Purchasing42, this is extensively
discussed, as is the endeavour to raise the proportion of
circular procurement to 10% by 2020. Moreover, in addition
to the public sector, the private sector can also give a good
example in this area.

Encouraging circular and biobased products

The Cabinet will initiate a move to have product policy
encourage circular and biobased products (at both thenational and the European levels). Special attention will begiven to the advantages of biobased and biodegradable
applications in which substances return to nature due towear or use (e.g. drilling fluids and lubricants).
The advisory report of the Social and Economic Council of
the Netherlands (SER) and the European Council
conclusions both indicate that there are possibilities totailor the existing set of instruments of tax law, levies andsubsidies to the transition to a circular economy.41 The SER
has also indicated that it wishes to play a role in this. The
Cabinet is eagerly awaiting the SER’s initiative on this point.
In the view of the Cabinet, various aspects should beconsidered in greening measures. For example, themeasures should not lead to the loss of jobs across theborder as, in the meantime, the global climate does not
improve. Furthermore, the measures should be easy to
implement for the Tax Administration. It should also always
be considered whether other means, such as requirements
and subsidies, would not be more effective or more costefficient than a tax measure.

41

The Cabinet bases its choices regarding deployment of these“market incentives” on a number of criteria: effectiveness andcost-efficiency compared with alternative measures, the effects on
employment, the feasibility and the solidity of the results. The
testing framework for tax expenditures applies to the considerationof tax expenditures.

28 | A Circular Economy in the Netherlands by 2050

Internationally, the Netherlands is seen as a leader in thearea of circular or sustainable purchasing. Dutch
experiences are published in both a European context andin the context of the UN.43
In addition to Socially Responsible Purchasing, innovationoriented purchasing is also an important programme in the
procurement domain. It encompasses tendering procedures
and other processes that are necessary for the successful
procurement of innovative products or services. Fromstrategic policy up to and including the implementation
and repeated purchase of innovations. The core ofinnovation-oriented purchasing is starting a dialogue with

42

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43

For example, in the implementation of the European Council
conclusions on the circular economy and in the UNEP “10-year
Framework Programme on Sustainable Consumption and
Production”.

interview

Truly believing in thecircular economy‘I would like to provide a bright future for my children,with lots of opportunities. This requires a future-proof
world. This means that we will need to adapt the current
economic system. Circular Economy is a way to achieve
this goal, by creating cycles and optimising product lives.
This will reduce leakage (waste) from our system.
I consider it important to view all this from an economic
perspective (circular economy): it must be underpinned bya revenue model yielding both financial and societal
returns.
Rabobank regards itself as one of the facilitators of thecircular transition. As a bank, we are anxious to financegood circular business models. Good in this case means
taking account of the triple bottom line: “people” (mankind& society), “planet” (the environment), but also a goodrevenue model (“profit”).

‘I would like to provide a bright
future for my children …’
The government can play a boosting role in this context
and encourage circular initiatives. If the government were
to express its firm belief in the circular economy, attachingconcrete control measures to this end (in terms oftaxation, subsidies, legislation, et cetera), this would
accelerate the transition. Good initiatives have alreadybeen launched, for example, by CSR Netherlands, butmore resources would be welcome.

Jeroen van Muiswinkel
Sustainable Business Developer, Rabobank
Government-wide Programme for a Circular Economy | 29

the private sector long before the tendering process begins
in order to encourage the business community to innovate
and to be able to take their ideas into account in the actual
purchase. This provides space for innovations in the area of
renewable or biobased materials and other circularinnovations. Use can also be made of the experiences
gained during innovation-oriented purchasing and thechannels in the purchasing domain in order to promote
circularity.

4.3.1 Barriers and opportunities
Higher capital requirements

Circular innovations generally entail higher capitalrequirements. The return-on-investment times are
sometimes longer, such as when businesses want to keep
possession of their products and want to earn money
through providing services.
Lack of knowledge and experience

National government gives a good example

The National Government itself wants to give a good
example in the area of socially responsible and circularpurchasing. Economic circularity in the operations of the
National Government provides opportunities to profit fromthe economic perspective of a circular economy, to combat
wastage of raw materials, to expand the scope forinnovation, and create opportunities for new businessmodels. The government is launching pilot projects
involving circular and biobased operations in the categories
of furniture, confidential paper, work wear, IT hardware,
waste and raw materials, and catering.
In 2017, the government-wide implementation of theseparation of office refuse will be completed. The goal is forthe government to halve the volume of non-recyclable
waste (comparable to household waste) by 2020, comparedto the volume produced in 2012.
The national government has the ambition of setting up
a first fully circular product category and to use lessons
gained from it in order to set up five other circular
categories starting in 2017.
In addition, the national government will also commit itself
to more circular and biobased purchasing in the construc­tion sector (see Chapter 5.4). The Central Government Real
Estate Agency RVB and Rijkswaterstaat (the executive branchof the Ministry of Infrastructure and the Environment) havean important role to play in this as contractors.

4.3 Financing
Investments in circular products and services have a different
risk profile, different depreciation periods, and a different
cost-benefit balance from linear products. There is also still
relatively little knowledge about circular business models.
There is a demand for insight into a wider social cost-benefit
balance and active support for circular business models.

30 | A Circular Economy in the Netherlands by 2050

There is a lack of specific knowledge and experience withthe circular economy in the financial sector and among
businesspeople. Private financers are also ignorant ofcircular innovations and therefore see investments incircular economy projects as high risk, partly due to theirlimited experience with circular revenue models.

4.3.2 Planned actions
Support private sector initiatives

The Cabinet intends to take decisions in the current cabinet
term to further stimulate investments in the Netherlands.
With the Netherlands Investment Agency and the BNG Bank,
the Ministry of Economic Affairs is also studying thefeasibility of an Energy Transition Financing Facility. Thisfacility is focused on boosting and realising economicallyand technologically sound projects that are difficult tofinance at the moment. The projects should makea contribution to a sustainable generation of energy, energy
savings, and the reduction of CO2 emissions. They may also
involve circular projects. Likely fields are, for example,
sustainable energy (e.g. geothermal energy), the use ofresidual heat, sustainability in an urban environment(including social real estate, small and medium-sizedbusinesses, and industry) and the circular economy. The
pilot project is scheduled to commence before the end of
this year.
The first commercial biobased factories have already beenannounced. To realise a sound investment for sugarprocessing, wood processing and pyrolysis, among others,
the Ministry of Economic Affairs is looking into possibilities
to support these companies.
Supporting entrepreneurs with developing revenue models

The transition to a circular economy is still in the earlystages. The group of pioneering businesses is small but
enthusiastic, and the group of companies lagging behind islarge. In between them there is a growing group ofbusinesses that see opportunities in the circular economy.
Yet they have not yet cashed in on them and often also do
not know how to do this. Encouraging circular
entrepreneurship should be integrated into the current
policy for encouraging sustainability in the businesscommunity. The Cabinet also intends to support the groupof “willing” companies more intensively in various ways.
• In recent years, experience has been gained withsupporting these companies through the Nederland
Circulair! programme. This assists companies in the areasof financing, value chain collaboration, start-ups,
design, and business models. The plan is for thisprogramme to continue;• The Cabinet is exploring the possibilities for a lowthreshold voucher scheme, providing entrepreneurs
with knowledge and advice regarding the developmentof revenue models and the utilisation of financial
instruments;• In follow-up to the recommendation of the Social andEconomic Council of the Netherlands (SER), the Cabinet
will invite financial institutions and businesses to look
into the possibilities of having new circular revenue
models compete with linear revenue models.
Private funding

Private funding for circular developments clearly shows that
there is support in society for the ambitions set forth by thegovernment. The Cabinet is pleased that private financers,
such as the three large banks (ABN-AMRO, Rabobank, andING), have underlined the importance of circular
entrepreneurship in a joint statement.44 They will also
investigate what else is necessary to increase the knowledgeof financial products and risk management in light of thecircular economy. The Cabinet will enter into a dialogue
with private financers about what is necessary and how thenational government can help to facilitate it.

who play a central role in society with the information
required to take decisions, and to tailor innovation more to
the three strategic objectives of this programme.
In its recommendations, the Social and Economic Councilof the Netherlands (SER) indicates that the transition toa circular economy introduces uncertainty about thestructural changes in the labour market. New jobs can becreated at all educational levels, yet at the same timeattention should be given to the jobs that will possibly be
lost.

4.4.1 Barriers and opportunities
Building up knowledge

The availability of knowledge that is important for thetransition to a circular economy varies from one topic to thenext. The development of information about material flows,
natural capital, the biobased economy, and effect estimates
regarding technology, the labour market, and quality labels
is still in full swing. Yet much is already known about
subjects such as assets, ownership ratios, prices, taxes, andsubsidies.
Following the conclusions of the Social and Economic
Council of the Netherlands (SER), the Cabinet hasestablished that coherent and inter-connected regional
policies regarding the creation of learning and experimental
environments aimed at the circular economy are largely
lacking.

In addition, through the Funding of sustainable energy projects
Green Deal, a joint expertise centre of the government,
major banks, and green banks is active.

The SER has also concluded that in the domain of the circular
economy, especially, a tailored approach is required at job
learning centres, and that the relevant regulations are too
rigidly structured.

European (co)financing

Labour market aspects

The European structural funds and the resources from theso-called Juncker fund (European Fund for Structural
Investments, EFSI) also provide opportunities for Dutch
businesses and governments to finance circular innovations
and investments.

Following on from the SER recommendations, the Cabinet
will conduct a study into the labour market aspects of thecircular economy, the underlying mechanisms and thepreconditions that must be met to contribute effectively toan acceleration of the circular economy.

4.4 Knowledge and Innovation
The development of knowledge (education and research)and the dissemination and exchange of knowledge innetworks are essential for the desired transition. This calls
for a supporting infrastructure. The objective of theknowledge and innovation intervention is to provide those44

MVO Nederland, Major banks support a circular economy in the
Netherlands, 2016.

Innovation policy

Entrepreneurs go through different stages in thedevelopment of their product or business model, fromresearch to a fully mature product in a mature market.
The government can implement policy to help a circular
product or service move on to the next phase. Each phasecalls for specific instruments.45

45

Massa is Kassa [Mass is Cash], developed in the context of the SER
Vision on Fuel.

Government-wide Programme for a Circular Economy | 31

To change the worn-out routines and structures of thelinear economy, social innovation is just as important astechnological and system innovations. Social change isnecessary to give the new technology a place in society. In
some respects, technology is even of secondary importance.

4.4.2 Ongoing efforts
Knowledge networks

The Netherlands has active knowledge networks operatingin the domain of the circular economy at both the nationaland regional levels. A large number of institutions
participate in these networks.46 Other networks too, such as
the Platform for Biodiversity, Ecosystems and the Economy47,
contribute to knowledge and practical experiences that
support the transition to a circular economy. In addition,
foreign knowledge institutes, such as the Ellen MacArthur
Foundation (EMF), the World Resources Institute (WRI), the Green
Growth Knowledge Platform (GGKP), the OECD, and the UNEPInternational Resource Panel (UNEP-IRP), also play an importantrole in the collaboration with Dutch knowledge institutes.

comprising representatives from the business community,
research institutes, educational institutions, and thegovernment, are being continued in 2017.
Biobased and circular economy

In recent years, networks and regional platforms haveinvested in the accumulation of knowledge regarding thebiobased economy.48 A network of scientists, businesses
from different sectors, and NGOs is developing knowledge
about the opportunities of biobased business cases, forexample, in the Biorenewables Business Platform and the
Platform Agro-Papier-Chemie. Furthermore, the developmentof the biobased economy is supported by cooperation withtwo educational centres for the biobased economy.
A good example of innovative education is a Massive Open
Online Course on the circular economy (Circular economy:
an introduction) with more than 1,700 participants from49 countries (cf. www.biobasedacademy.nl). Delft Universityof Technology has organised a similar course on the circular
economy that attracted more than 6,000 participants from47 countries.

The Social and Economic Council of the Netherlands (SER)
justifiably underlines the importance of strengthening thecollaborative ties between governments, businesses andeducational institutions at the regional level. In education,
the circular economy is still a relatively new subject.
Sustainability education already features many networks
and curricula in which sustainability is embedded andsupported by the inter-ministerial Duurzaam Door
[Sustainably Forward] programme.

In Europe, the transition to a “Bio-Economy” is one of thesocial challenges in the European Innovation Policy (Horizon2020). A key effort in this regard is the Joint Undertaking
Biobased Industries (JU-BBI), an instrument with more than
3.7 billion euros in public and private contributions to build
a bridge between research and the private sector. The goal isachieving a 20% market share for biobased chemicals andmaterials by 2020 and a market share of 30% by 2030.

Knowledge agendas

Material Flows Monitor

A number of circular economy knowledge agendas havebeen drawn up, the Groene Brein (Green Brain) network hasdeveloped a knowledge map (www.hetgroenebrein.nl/
kenniskaarten), and the Dutch National Research
Agenda is giving attention to the circular economy(www.wetenschapsagenda.nl).

In recent years, Statistics Netherlands (CBS) has compiled
time series, via the national Material Flows Monitor (Monitor
Materiaalstromen), of material use in the Netherlands linked
to the Environmental Accounting, including water
consumption, ownership ratios, and international value
chains. Based on this work, the supply security risk for
64 metals and minerals for the Dutch economy could be
brought to light. The circular potential of 1,100 abiotic
product groups can now also be determined in terms ofquantity. The monitor is being continued on the same basis,i.e., with the environmental accounting linked to thematerial flows monitor.49

Rubber, plastics and metal

Within the “From Waste to Resources” (VANG) programme,
networks have been set up for rubber, plastics, and metal
to develop and transfer knowledge(www.circulairemetaalketen.nl). These networks,

46

47

Such as CBS, TNO, PBL, Rli, NSOB, Delft University of Technology,
Erasmus University, Leiden University with the Centre for
Sustainability, Utrecht University with the USI, RIVM, CPB, WUR,
Rathenau Institute, and Groene Brein.
Platform Biodiversiteit, Ecosystemen en Economie is a collaboration
between VNO-NCW and IUCN Nederland, supported by the Ministryof Economic Affairs. The Platform focuses on the development ofbusiness cases for handling natural capital in a sustainable manner.

32 | A Circular Economy in the Netherlands by 2050

48

www.biobasedeconomy.nl/kennisnet

49

Also based on the CBS report “Expanding the Material Flow Monitor,
2015”, and actions set out in the Government-wide programme(linkage with planetary boundaries and SDGs, sustainability
framework for all raw materials, regional tool, raw material scanner,
biobased economy, resilience of value chains, et cetera).

interview

Expanding the useof bioplastics
Tjerk de Ruiter, CEO of Corbion: ‘Polylactic acid (PLA) isa raw material that is used in, e.g., products for the
medical industry and coffee capsules, plastic bags, (food)packaging, plates, and cutlery, but also in cars, textiles, andelectronics. Corbion has already supplied the chemicalbuilding blocks for the production of polylactic acid. Now
that we have built our own bioplastics plant, we canproduce our own PLA, a biodegradable plastic made frombiomass. As PLA is made from biomass, it is a renewable
raw material and thus a fine example of a circular building
block. It is compostable and can thus be used for
consumables that are difficult to recover by recycling.’
That is another motive for Corbion. De Ruiter adds, ‘Whatis better than consumers directly contributing to thecircular economy?’ He is proud of the fact that, for example,
not only food packaging but also coffee capsules withcoffee grounds and all can go into the organic waste bin.

‘PLA is a fine example ofa circular building block.’
In addition to sugar, Corbion has also successfully usedother types of biomass for their PLA production. As yet,this is a costly process, whose further development andupscaling requires more research. Corbion is setting up
a consortium with private sector parties to enable its
introduction and reduce the costs.
‘The use of bioplastics can be widely expanded. For
example, by explaining to consumers that biodegradable
plastics can be discarded in the organic waste bin. The
government could be involved in raising public awarenessconcerning the advantages of degradable plastics.’

Tjerk de Ruiter
CEO Corbion
Government-wide Programme for a Circular Economy | 33

Investing in experiences with natural capital

In recent years, businesses, financial institutions and thenational government have invested large sums in
instruments and methods to make their dependence andimpact on natural capital manageable. Thus, in the context
of the Transparency of Natural and Social Capital Green
Deal50, more than 20 best practices have been collected,
predominantly from businesses. Participating companies
emphasise in the final report that better information on
natural and social capital leads to better decisions and that
there are now sufficient practical tools for businesses towork with. The financial sector has also explored promising
approaches; for example, the Dutch Association of Investors
for Sustainable Development (VBDO) has issued guidelines
on natural capital for investors in sustainable developmentwith the financial support of the Ministry of Economic
Affairs.
Natural capitalIn addition to promoting and facilitating the
aforementioned activities, the government has also taken
steps in the area of natural capital under its own
responsibility. Information about natural capital andnature-based solutions is provided via the Atlas Natuurlijk
Kapitaal (Natural Capital Atlas), via biomimicry in education(HAS University of Applied Sciences, Utrecht University) andthe foundation Biomimicry NL. In addition, the Ministry of
Economic Affairs and the Ministry of Infrastructure and theEnvironment have commissioned Statistics Netherlands(CBS) to explore the possibilities for setting up natural
capital accounts in the Netherlands, which should givenatural capital a place in the economic system. This
exploration has led to the conclusion that the prospects are
good. CBS is preparing subsequent steps, taking into
account the Natural Capital Atlas.
Furthermore, a network has formed around sustainablearea management called Verified Conservation Areas (VCA).
This international VCA approach is used to enhance thetransparency and accountability of sustainable area
management in the Netherlands, with a view to providing
new revenue models and attracting investors.
Dissemination of knowledge via raw materials knowledge
plaza and regional tool

The raw materials knowledge plaza (kennisplein grondstoffen)
and the associated tool that are currently being developed
are intended to share all available information about therisks and opportunities involved in raw materials with

50

Ministry of Economic Affairs, IUCN Nederland, MVO Nederland, True
Price, 2016, Het loont om transparant te zijn. Geleerde lessen van de Green
Deal Samenwerken aan Transparantie van Natuurlijk en Sociaal Kapitaal
2014-2016 [Being transparent pays. Lessons learnt from the Green Deal
Collaborating on Transparency in Natural and Social Capital 2014-2016].

34 | A Circular Economy in the Netherlands by 2050

entrepreneurs, (government) purchasers and policymakers
in an interactive manner. Both will become available in2016. The information available nationally will also be
expanded and translated to the regional level via thedevelopment of a regional tool. The objective of this tool is
to assist regional players in completing regional circularbusiness cases. This tool will be actively offered to stake­holders at the regional level. For the five priorities in thenational approach, the toolbox will be used to investigate
where (on what scale level) possibilities exist for circular
entrepreneurship.
Encouraging circular product design in the Netherlands

The Cabinet is convinced that increasing the life of
products, making them repairable and using products more
efficiently should be encouraged. To this end, the Cabinet
will continue a programme aimed at fostering circular
design and link it to the five priorities set out in thisgovernment-wide programme. Entrepreneurs and designers
will be assisted, in interaction with scientists and students
in workshops, with the development of new circular
products, services, and business models.
www.circulairondernemen.nl and Nederland Circulair!

Since 2015, businesspeople have been informed aboutcircular entrepreneurship via the platform
www.circulairondernemen.nl. This platform will be
continued in 2017 and the network function will be further
extended.
The Nederland Circulair! programme, from which this platform
and CIRCO have ensued, initiates different practical support
programmes for companies and start-up enterprises thatwant to take the next step towards circular entrepreneurship.
This programme will be continued in 2017.
KIEM-VANG programmes and Closed Loop Cycles

With respect to research and support, two programmes
have been initiated that are specifically aimed at the circular
economy. Firstly, the KIEM-VANG51 scheme established by
the Ministry of Infrastructure and the Environment andcarried out by the National Coordinating Body for Practiceoriented Research (Nationaal Regieorgaan Praktijkgericht
Onderzoek), which promotes research projects conducted byuniversities of applied sciences in cooperation withcompanies. These projects pertain to material flows: metal,
plastics, rubber, biotic waste flows, nutrients, and building
materials. This scheme will be continued in 2017. We are
examining whether more of these networks can be set up;e.g., for the furniture and kitchen industry. Furthermore, in2016 the NWO programme Closed Loop Cycles – Transition51

Knowledge Innovation Mapping. http://www.regieorgaan-sia.nl/
nieuws/pro-vang

to a circular economy (Gesloten Kringlopen – Transitie naar een
circulaire economie) will be launched. This cross-sectoral
programme (5 million euros) targets the Top Sectors of Agriand Food, Logistics, Horticulture & Cultivation Materials,
and Water.
Top Sector policy, biobased economy programme, and circular
economyApart from encouraging research and development
investments via innovation subsidies (solving “market
failures”), the current innovation policy is, to a significant
degree, aimed at strengthening the collaboration between
businesses, knowledge institutes, and governments (solving“system failures”).
In the Top Sector policy, businesses, knowledge institutes,
and governments work closely together on innovations tostrengthen the competitive capacity of the Netherlands.
The Top Consortium for Knowledge and Innovation (TKI)
Biobased Economy 2015-2027 is implementing four researchlines focused on optimising the use of biomass for different
objectives, such as for energy supply and chemicals. In
addition, the consortium is working on relevant material
and process innovations in the roadmaps of the Top Sector
High Tech Systems and Materials.
Finally, initiatives in the area of the circular economy andBiobased Economy can make use of the government’s existing
financial tools.52
The Netherlands Enterprise Agency (RVO) will completea study this autumn (2016) into the degree to which
financial barriers, as presented in the literature on thesubject, actually hamper circular and biobased initiatives,and how the national government can assist in reducing or
removing such barriers.

4.4.3 Planned actions
Dynamic knowledge and innovation agenda

In collaboration with societal stakeholders, a governmentwide knowledge and innovation agenda will be establishedin 2017, in keeping with the Cabinet’s efforts to achievea circular economy. This agenda will foster interconnectivity
in the development of knowledge and build on theknowledge agendas already developed. Existing innovationlines, such as TKI Biobased Economy 2015-2027, and research
programmes in the area of electric transport will be factored
in. Furthermore, the knowledge and innovation agenda to52

For example, Innovation Credit (Innovatiekrediet), Agricultural
Guarantees (Garantstelling Landbouw), Business Financing Guarantees(Garantie Ondernemingsfinanciering), the Green Projects Scheme(Regeling Groenprojecten), Early Phase Financing (Vroege fasefinanciering), the Growth Facility (Groeifaciliteit) or SEED Capital.

be set up should provide room for the development of
indicators for monitoring and quantifying the progress of
the implementation of the circular economy and theprogramme (key performance indicators).
In its innovation policy, the Cabinet also aims to strengthen
the collective attention given to the circular economy in therelevant routes of the Dutch National Research Agenda53 andin the different Top Sectors.
Continued development of Natural Capital

In order to realise a circular economy that remains within
the capacity of the earth to support it, the Natural Capital
Atlas will continue to be developed, especially for local
governments and businesses. This continued development
will be aimed at identifying the potential of possible
innovation, revenue models and business cases of natural
circular solutions for businesses and local governments.
In the meantime, a study will be conducted into how the
Atlas can continue to exist after 2020.
The Dutch support for the VCA (Verified Conservation Areas)
approach will also be continued in 2017 and the
VCA network will be scaled up so that it can function asa label for natural circular solutions in area management.
Integrated knowledge bankStatistics Netherlands (CBS) proposes supplementing thematerial flows monitor with other available information.54
Examples include information on the degree of toxicity ofmaterials and products, and how the Netherlands’ use of
raw materials relates to the planetary boundaries. The
Cabinet will do this step by step, in order to produce
a knowledge bank. All information from the knowledgebank will be disseminated via the raw materials tool forcompanies and the regional tool under development. In
addition, it will investigate whether and, if so, what
information about the effects on biodiversity can be linked
to the raw materials databank in order to be able to takebetter account of the risks and dependencies of natural
capital.
The knowledge bank (with information and access tools)
can lead to an infrastructure in which, for instance, strategic
agenda setting for European research and investment funds
is commonplace.

53

Under the National Research Agenda (Nationale
Wetenschapsagenda), the Smart Industry, Circular Economy, and raw
materials routes are being developed: sustainable circular impact,
and Materials Made in Holland (www.wetenschapsagenda.nl).

54

CBS, Expanding the Material Flow Monitor, 2015.
Government-wide Programme for a Circular Economy | 35

Tenders and competitions

The Cabinet intends to challenge parties through, forexample, tenders and competitions to invest in value chain
cooperation and in the joint tackling of a social challenge.
This approach is not yet commonplace, yet it does fit in wellwith the socially responsible purchasing policy under whichgovernment contracts are awarded on the basis of desired
performance or social values.
Communities of practice

For the five priorities from the Government-wide
programme (see Chapter Five), the national government
will set up a number of communities of practice. This also ties inwith the recommendations of the Social and Economic
Council of the Netherlands (SER). Communities of practice
are a valuable instrument for businesses to gain new
knowledge in the area of the circular economy, primarily
when giving practical substance to the business operations.
The experience gained in this way is very significant forother companies.
Cross-sectoral approach

The circular economy is a theme that often affects several(Top) sectors. In the policy on Top Sectors and industry, thecircular economy is taken up as a cross-sectoral theme.
Together with the business community, knowledge
institutes, and the government, the desirability andfeasibility of a number of roadmaps for the priorities will be
explored.

For secondary schools, the Ministry of Infrastructure andthe Environment and the Ministry of Economic Affairs have
set up the Duurzaam Door programme (Sustainably Forward).
The substantiation of this programme is currently being
studied, as are ways to flesh out the directive role.
Channel existing EU resources to the circular economy

The EU is an important source of funding for research andinnovation for the circular economy (Horizon2020 and
LIFE). For the budget years 2016 and 2017, Horizon2020 has
allocated approximately 650 million euros to circular
economy projects, including funds for large demonstration
projects aimed at closing the loop in the raw materials andwater cycles, funds for regional development projects, andfunds for the development of new business models. The
Netherlands is already making good use of these resources.
Small and medium-sized businesses are playing
an important role in this and should be able to benefit fromthe available resources as well. The Cabinet is committed toensure that Dutch businesses enjoy maximum profit fromthese resources. It also aims to embed the circular economy
securely in the Horizon2020 work programme 2018-2020 and tochannel the financial resources of the European Investment
Bank (EIB), the European Fund for Strategic Investments(EFSI), and the global funds of the World Bank andInternational Finance Corporation (IFC) to the circular
economy.

4.5 International Cooperation

Circular Challenge Project

The Cabinet will challenge the initiators of the Circular
Challenge project to develop a business case based on
innovation and investments that can offer a sustainable
solution for the social issues of our time. The feasibility ofsuch a business case often depends on the question ofwhether governments – central, regional and local – haveadopted an integral policy approach (e.g. in the areas of raw
materials, energy, and the environment) with appropriate
regulations. By involving and gathering the expertise of thegovernment early on, a collaboration is created to foster
innovation within a financially profitably business case witha view to legal authorisation. This immediately provides
opportunities for the European internal market and, where
possible, the government as a “launching customer”. Ties
can also be sought with existing initiatives such as NL
Innovative Topland of the Confederation of Netherlands
Industry and Employers (VNO-NCW).
Vocational education

The Cabinet aims to embed the circular economy firmly in
education. For the higher education sector, a Circular Economy
Platform will be set up for lecturers at Universities of Applied
Sciences with the objective of developing and coordinating
research programmes, and exchanging knowledge.
36 | A Circular Economy in the Netherlands by 2050

The circular economy is an international challenge. Various
global developments require a radical change in global
production and consumption patterns:• the rapid development of countries;• the growing world population;• the effects of climate change;• the growing scarcity of natural capital and raw
materials;• the rising demand for products and food.
In other words: the absolute decoupling of our raw
materials consumption from economic growth presents us
with a collective challenge. The transition to a circular
economy makes a significant contribution to resolving thisissue.
In order to realise a circular economy in the Netherlands,
it is essential that this transition also takes place at theEuropean and global levels. Value chains and waste flows
are international and, although use or consumption takes
place in the Netherlands or the EU, the discarded products
or materials do not by definition end up in the Netherlands.
Legal and economic preconditions are to a large degree
established on European level and Dutch businessesinterview

Launching successful
initiatives across theglobe
After I had started and built up companies in the UnitedStates, I returned to the Netherlands, where I intended to
set up a business that would make a positive contribution
to the world. So I thought to myself: what would reallycontribute to resolving the climate issue on a global scale?

‘I intend to set up a businessthat would make a positive
contribution to the world.’
I decided to join forces with Black Bear, a company thatrecycles carbon black from car tyres. This resolves two
issues. First of all, we reduce the pile of discarded car tyres:some 2 billion a year. In many cases, these are burnt,
emitting high levels of CO2, or they end up on a landfill.
In Africa, they are a source of malaria problems, because
mosquitos thrive in the water that collects in the tyres.

The carbon black we retrieve from old tyres can be re-used
for the production of new tyres or, for example, paint or
ink. The quality of the carbon black we retrieve is similar tothat of the carbon black commonly extracted frompetroleum oil. But our new production process emits far
less CO2, and it yields valuable oil and gas as by-products.
Our initiative is capital-intensive and we needed financial
support long before we could produce something
concrete. Fortunately, we received subsidy from thegovernment – without which we couldn’t have made it –but that required us to keep extensive records: retaining
receipts, clocking hours. This is quite a burden. Reallyputting the circular economy on the map requires a few
worldwide successful initiatives. This is what the
government should focus on.

Martijn Lopes Cardozo
Black Bear
Government-wide Programme for a Circular Economy | 37

increasingly operate internationally.
A successful Dutch policy for the circular economy will
therefore require operating on several levels. At the EU
level, we are working on the right legal and economic
preconditions and incentives so that we can thenimplement them as effectively as possible at the national
level. At the same time, we are committed to better
understand the impact that a circular economy in the
Netherlands and the EU may have on other countries,
especially low-income countries. In a UN context and ininternational public-private partnerships, we arecommitted to an ambitious agenda for an international
circular economy without any negative impact on lowincome countries. In this respect, we will capitalise on thestrengths of the Dutch economy and turn our national
knowledge and expertise into a product to be exported toother countries.
Three objectives
Three objectives are key to international cooperation in thearea of the circular economy:
Creating international conditions for a circular economy

The Cabinet is committed to creating an enabling
environment for the transition to a circular economy: both
legal preconditions (legislation and regulations) andeconomic preconditions (a well-functioning market forsecondary raw materials). This is particularly relevant for
European cooperation with regards to EU legislation and thecommon market.
International market for Dutch leaders

The circular economy provides international opportunities
for the Dutch business community. By operating strategicallyat the international level, our innovations can be capitalizedabroad. The export of Dutch knowledge and expertise abroad
can strengthen our frontrunners position internationallyand create economic benefits.
Contributing to an international circular economy without
negative impact

In order to build an international circular economy andcontribute to realizing the SDG’s, the Cabinet intends tomake Dutch knowledge and experience available beyond
our national borders, working together with our companies
and other partners. These efforts will be focused on thosecountries and local communities that have difficulty copingwith the social and environmental impact of the current
linear economic system, and where a circular economy
could contribute to a local sustainable economy and the
security of supply of critical materials.

A study conducted by the Centre of Expertise on Resources55
shows that the negative effects of a circular economy inEurope will be limited for most developing countries thatexport raw materials. The EU-bound share of the export isoften relatively small and accounts for less than 5% in the
GNP of these countries. This would change if othercountries that import raw materials also make a transition
to a circular economy. Particularly in countries where a lackof good management and large demographic pressures may
increase their economic vulnerability. To avoid overall
negative effects, special attention should be given tocountries that export raw materials that are also dependent
to a large degree on the extraction and export of primary
raw materials.

4.5.1 Barriers and opportunities
The perspective of a circular economy offering solutions for
global issues concerning raw materials has not yet takenroot everywhere. Some countries that export raw materials
are, for instance, concerned that the circular economy inEurope could lead to a decreased demand for raw materials
and thus jeopardise their economic development. At the EU
level, although there is broad support for the circular
economy, opinions may differ with respect to the right pace
and the level of ambition. Some eastern member states
express concern about the feasibility of ambitions and areasking for support in making the transition. In order tobuild EU-wide and global support for ambitious measures,
it is therefore important that everyone is able to profit fromthe economic, social and environmental benefits of thecircular economy.
The circular economy calls for a new, facilitating role for thegovernment and for new ways of cooperation between
governments and the business community, between sectors
and supply chains. The Netherlands has experience with
this: the “polder model” is in our genes. But on the inter­national playing field, this is still a relatively new approachthat cannot be applied one to one in every context.
These barriers can be partially removed simply by showingthat it works. In recent years, the Netherlands has
established an international reputation as a frontrunner inthe circular economy, with knowledge and experience inthe areas of waste and nutrient management, technologicaland social innovation, an integrated approach and crosssectoral cooperation with companies, knowledge institutes,
and governments. Dutch companies are international
leaders in the fields of water, agriculture, maritime activities,
logistics, and governance, and presenting integral solutions.
These are the “unique selling points” with which Dutch

55

38 | A Circular Economy in the Netherlands by 2050

Centre of Expertise on Resources: The Circular Economy andDeveloping Countries, COE-Resources Issue Brief 3, 2016

partners can capitalize their knowledge and experienceinternationally.

4.5.2 Ongoing efforts
International conditions

During the Dutch EU presidency in the first half of 2016, theNetherlands actively brought forwards the Commission
proposals on a circular economyon the agenda andorganised various meetings to collect input from European
stakeholders.56 As a result, in the Environment Council on
June 20th 2016, the member states unanimously declared
their support for a European transition to a circular economy.
They called on the European Commission and on each otherto remove barriers in regulations, to create circularincentives within current policies, to deploy market-based
instruments instruments, to take an integrated approach,and to create room for circular initiatives, e.g., via
Innovation Deals. In addition, they are calling on theEuropean Commission to take concrete measures for thesustainable sourcing of raw materials, promote a longer
lifespan of products (e.g., via the Ecodesign Directive), to
reduce plastic waste, to tackle food wasta, and to establish
a platform for cooperation to support swift implementationof the Action Plan.57
On March 3rd 2016 the North Sea Resources Roundabout was
concluded: the first international Green Deal, initiated by The
Netherlands.58 This illustrates a new way of cooperation in
an EU context, based on voluntary cooperation between
governments and companies that are leading the way in thetransition in an area in which an EU-wide approach has not
yet been established.
In a manifesto under the Dutch presidency during“Bio Economy Utrecht 2016”, the European bio economy
stakeholders called on the bio economy strategy from 2012
to be revised. The Netherlands strongly supports a firm bio
economy strategy from the European Commission.

and recycling sector, yet it also concerns the (re)use of raw
materials, circular design and production, social
innovation, and the creation of added value via integral
supply chain cooperation.
The Dutch business community is also active in this respect.
The “Netherlands Circular Hotspot” campaign of last year, forinstance, resulted in the opening of the Circular Economy
Expo in Hoofddorp and a successful incoming trade missionin April 2016.
Towards an international circular economy without passing on
negative impacts

The Netherlands operates in global bodies such as the UN
and the OECD in order to realize the potential of the circular
economy to reduce pressure on the environment, to assure
supply security of resources and to promote geopoliticalstability.59 In focused partnerships, the Netherlands works
with public and private stakeholders on specific supply
chains and sectors, such as the UNEP Global Partnerships
on Nutrient Management and Marine Litter. In addition, it
is working on International Corporate Social Responsibility(IMVO) covenants that are concluded in multi-stakeholder
contexts (between the private sector, NGOs, trade unions,and the government) in which the circular economy canplay a part in removing the social and environmental
impacts of our linear economic system and converting theminto opportunities for sustainable economic growth. New
IMVO covenants, such as the one for clothing and textiles,
as well as the covenants under preparation for electronics
and metals, offer the possibility of including roadmaps forthe circular economy. Further more the possibilities fora more circular economy in urban deltas will be explored,with the aim of strengthening local economic
development.

International market for Dutch leadersInternationally, through the World Bank/International
Finance Corporation (IFC) for example, the Netherlands
supports the application of the Natural Capital Protocol bycompanies and the use of natural capital accounts bygovernments.60

The government helps create international business
opportunities for the private sector via, for example, theTop Sector policy and by organising trade missions.
Economic diplomacy has been mostly aimed at the waste

With regard to the SDG’s, the Cabinet intends to givean assessment by autumn of how the Netherlands can fulfil
its responsibility, in concrete terms.
At the same time, impact assessments will be conducted at
an early stage to map out the effects that policy options fora circular economy will have on global sustainable develop­
ments and low-income countries. This will strengthen

56

This is implementing the motion of Dijkstra (Parliamentary
documents II, 21 501-08, no. 557) that calls on the government towork intensively in new proposals for the promotion of investments
and the removal of barriers.

57

Council of the European Union, Council conclusions on the EU action
plan for the circular economy, 20 June 2016 and Council conclusions
on Food losses and food waste, 28 June 2016.

59

such as UNEP (incl. via 10YFP), OECD, World Bank, UNECE, WRI and
IRP

See paragraph 4.1.2

60

www.naturalcapitalcoalition.org/protocol

58

Government-wide Programme for a Circular Economy | 39

interview

Discarded fishing nets
given a new life as
carpets‘We came up with the idea during a brainstorming session.
At that time, we did not just procure yarn, we also provided
our suppliers with recycled yarn. A successful example ofa circular value chain. Eventually, market demand forrecycled yarn exceeded our supply. This made us wonder
whether fishing nets, made from high-grade nylon, could
be used as an alternative source for the yarn in our carpet
tiles.’‘In the coastal areas of development countries, large
sections of the population fish for their living. Discarded
fishing nets seriously affect the eco systems of these areas.
Through the Net-Works project, set up in collaboration
with the Zoological Society of London (ZSL) and yarn
manufacturer Aquafil, local fishermen are trained to selectand clean discarded nets. The coast and the ocean arecleaned, thereby restoring biodiversity. The local
population makes some money and Interface re-uses
valuable resources for the production of carpet tiles.’Ton van Keken
Vice President of Operations, Interface
40 | A Circular Economy in the Netherlands by 2050

‘Increasing the appeal of using end-of-life products as
an alternative source of scarce and expensive resources
requires a new balance in the tax system. Under thecurrent system, labour is heavily taxed, whereas hardly any
tax is paid on energy and resources. The current systemthus encourages exactly the opposite of what a circular
economy aims to achieve, viz., more work, a reduction inenergy consumption, and a more efficient use of existingand old materials.’‘… hardly any tax is paid onenergy and resources.’‘With Mission Zero, Interface aims to eliminate any
negative impact on the environment by 2020. In addition,with our new Climate Take Back mission we aim to makea restorative contribution to the environment and combat
climate change.’policy coherence and synergy. In addition, any future
passing-on effects can thus be prevented or mitigated asmuch as possible.
In an international context, attention will be given to theexport of recyclable waste and the risk of passing the issue
on to low-income countries.

4.5.3 Planned actions
International conditions

At the European level, the Cabinet has the ambition of
implementing the circular economy package of theEuropean Commission and the relevant Council
conclusions in the very near future. This calls for creating
the right conditions for the circular design of products andservices, for longer product lives, and for uniform productand waste regulations that are conducive to a circular
economy. This will give secondary raw materials access to
the European market, enabling the sustainable sourcing
and use of raw materials, and the targeting of public andprivate financing sources to circular innovations.

International market for Dutch leaders

The development of business cases, the organisation of
trade missions, and government-to-government (G2G)
support can be mutually supporting. This can result in
ambitious public-private collaboration that focuses on
specific opportunities and dilemmas in rapidly growing
cities in emerging markets and developing countries. The
best practices of the Dutch circular economy are used toposition the Netherlands as a Sustainable Urban Delta, building
on experiences with the Clean Urban Delta Initiative in Rio deJaneiro.62 A smart connection of the supply and demand forknowledge and expertise in the world’s urban deltas canboost local economic development and activity.
Efforts expended by embassies

During the EU presidency, Dutch knowledge and experience
regarding the circular economy attracted considerable
international interest. Various embassies, for example in
Denmark, have since organised seminars/events with thelocal business community to support the circular economy.
Substantive support for the embassies will be structured,thus enabling them to properly propagate the Netherlands’leading position in this area.

Strategic coalitions

To guarantee sufficient support for these Dutch ambitions,
it is essential that efforts are not solely directed towards theEuropean Commission. Also in light of the current dynamics
within the EU, it is important that efforts are also focusedon strategic coalitions with frontrunning public and private
stakeholders , as well as on sharing knowledge andexperience with other parties.
The activities that the Cabinet has in mind are:• Establishing and actively participating in a European
platform for the Circular Economy61;• Coordinating and steering the implementation of theEuropean Action Plan for a Circular Economy, e.g., via anpolicy network of directors/directors-general;• Supporting the transition in eastern and southern
member states in cooperation with other leading
European countries;• Initiating and contributing to European and regional
conferences, such as the European Conference on
Plastics (December 2016);• Concluding international Green Deals in follow-up to
the Green Deal North Sea Resources Roundabout (NSRR), e.g.,
in European river basins and in areas with market
potential for recycled nutrients from animal manureand other organic residual waste flows.

Holland Circular Hotspot Platform

The Ministry of Infrastructure and the Environment,
together with the trade association Envaqua for water andenvironmental technology, will soon launch the platform
Holland Circular Hotspot. This platform focuses on companies
and knowledge institutes in the waste and recycling sectorsthat (want to) operate internationally, and on companies
and knowledge institutes that focus on the transition toa circular economy and that (want to) share their knowledge
and expertise internationally. Attention is also given to thedomestic market, which enables us to present iconic
projects abroad. The platform Holland Circular Hotspot canlend support for a firm international positioning of the
Dutch private sector in the area of a circular economy,building on successful initiatives like the one launched by
Netherlands Circular Hotspot (NLCH).
Trade missions

Incoming and outgoing economic missions have provided
a spotlight for circular innovations in the Dutch private
sector. Two missions to Eastern European countries anda climate adaptation mission to Indonesia are scheduled forthe autumn of 2016; the Netherlands will also participate in
the first Chinese circular economy trade fair to be held thisautumn.

62
61

See footnote 10.

Clean Urban Delta Initiative Rio de Janeiro, see http://goo.gl/
PsqQPb.

Government-wide Programme for a Circular Economy | 41

Research

Cooperation with countries exporting raw materials

To shed light on the impact of the circular economy on
global sustainable development and to strengthen policy
coherence and synergy, the Cabinet is studying potential
barriers and undesirable effects of existing measures withregard to waste processing (e.g. waste from electronics,
textiles, metal, and paper) to serve as a basis for thedevelopment of a circular economy in developing countries.
Impact reports, drawn up with the support of theNetherlands Commission for Environmental Assessment(MER), will enable the identification of potential
unforeseen effects at an early stage of policy development,
and mitigation of any future passing-on effects.63

The Cabinet is committed to cooperating with countries
that export raw materials and with countries that have large
waste flows around rapidly developing cities on the basis of
the so-called “mutual gains approach”, which aims to remove
the negative social and environmental impact of our linear
economic system and to convert it into opportunities forsustainable economic growth. An example of suchan approach is the relationship that the Netherlands hasentered into with Morocco. This relationship wasestablished in light of Morocco’s strong position as
an exporter of phosphate and its vulnerability with respect
to water management (a scarcity of water) due to climatechange. Similar opportunities also present themselves ininternational material value chains of, among othermaterials, tin, gold, lithium, textiles, nutrients, and plastics
or in sectors such as the metal sector and the maritime
sector.

Cooperation with the Caribbean region

An initiative has been launched with the United Nations
Environment Programme (UNEP) based on barriers
perceived in our constituent parts of the kingdom andmunicipalities in the Caribbean region, in order to develop
a good approach to waste management and the circular
economy. The initiative will consider how, throughinnovation and partnerships between the islands andbetween private and public parties, the circular economy
can be developed in these areas. This initiative, which canalready count on the broad support and enthusiasm of theisland residents, can possibly lead to an international Green
Deal between the Small Island Developing States (SIDS) in the
Caribbean region, UNEP, the Dutch Government, andprivate companies in, for instance, the tourism sector.

63

Quick scan Circular economy: effects on developing countries, PBL,
2016.

42 | A Circular Economy in the Netherlands by 2050

5
Priorities
5.1 Biomass and food5.1.1 Why this priority?
Biomass is an indispensable raw material in the circular
economy. This is the case for both produced biomass andbiomass from residues. By its nature, biomass is a circular
raw material, which distinguishes it from other raw
materials. Biomass is used for food and feed; it is a basematerial for, inter alia, textile, paper & carton, building
materials, chemicals, plastics, transport fuels, and energy.
Biomass is thus of essential importance for reducing ourCO2 emissions and our dependence on fossil resources.
Furthermore, its use contributes to the greening of several
major economic sectors with considerable large exports(biobased economy).

5.1.2 Vision for 2050
In a circular economy the closure of loops is central. Biomass
and biotic residues can eventually be incorporated into
natural cycles (biosphere), provided they do not carry any
risks for public health and the environment. Because of thegrowing world population more biomass needs to be
produced for food, feed, energy, materials, and otherapplications. In order to reduce pressure on natural capitaland to make more biomass flows possible, it is importantthat biomass is retained in cycles for as long as possible.
The closed loops principle is not new to the agro sector; this
sector traditionally revolves around natural cycles. However,as a result of industrialisation and internationalisation in
the past century, this sector has also evolved into a largely
linear system focused on efficiency.
In a response to the WRR [Dutch Scientific Council for
Government Policy] report Towards a food policy64, the Cabinet
presented its views on food policy to the House of Represen­tatives on October 30th, 2015.65 In its response, the Cabinet
indicates to pursue an ecologically sustainable food system
in which raw materials, energy, water, and nutrients are

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utilised economically and efficiently, the preservation ofnatural capital is taken into account, and natural capital isused in a sustainable manner. This means that the quality ofsoil, water and air is protected, and biodiversity is main­tained, while at the same time reducing greenhouse gas
emissions.
Furthermore, on 27 January 2016, the Cabinet presented theStrategische Visie voor de inzet van Biomassa op weg naar 2030
[Strategic Vision for the use of Biomass on the road to 2030]
to the House of Representatives.66 This indicates thatsufficient sustainable biomass could potentially become
available to meet the Dutch demand for biomass for food,feed, energy, transport, chemicals and materials. Provided
that the efforts bear fruit, the focus will be on expanding
the supply of biomass and the optimum use of biomass.
For reasons of cost effectiveness and the relatively limited
availability of other options, bio-energy will continue to be
stimulated under climate adaptation and renewable energy
policy. In addition to food and feed, biomass is increasingly
used in sectors featuring few other renewable alternatives:
chemicals & materials, aviation & shipping, long distanceheavy road transport, and high temperature industrial heat.
This government-wide programme constitutes a next stepand contributes to the realisation of the two visions
outlined above.

5.1.3 Strategic goals
The three strategic goals of the programme will translated
to the biomass & food priority in the following manner:
1. Optimising the use of biomass and food by closing loops.
All raw materials, semi-manufactures, and products
must remain in cycles as long and at as high a grade as
possible, by utilising raw materials to the largest extend
possible, making high-quality use of biomass, andrecycling residues. This also calls for optimising
efficiency in the use of biomass (cascading and multiple
valorisation), amongst other ways by combating (food)wastage, preventing waste, the w­ ell-balanced
application of fertilisers, and efficient incineration;

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Government-wide Programme for a Circular Economy | 43

2. Reducing the use of and replacing fossil resources bysustainably produced biomass;
3. Developing and implementing new production andconsumption methods that lead to improvements anddeviations from the trend in the use of biomass andfood. An example is the transition towards the use ofalternative proteins.

5.1.4 Ongoing efforts
Sustainable biomass and food production
Promoting sustainable trade value chains

The agro & food and biomass sectors operate at aninternational scale and depend on import for many of theirraw materials. Their international nature is a factor
complicating the closure of loops and the sustainable
management of natural resources. The Sustainable Trade
Initiative (Initiatief Duurzame Handel, IDH) and Solidaridad are
key partners in promoting the sustainability of trade value
chains. As indicated in Paragraph 4.5, the Cabinet fosters
sustainability initiatives launched by the sectors, publicprivate collaborations, (international) Green Deals, andthe conclusion of ICSR covenants (ICSR = International
Corporate Social Responsibility). In addition, thegovernment supports initiatives such as the Alliance for
Climate Smart Agriculture and the Round Tables for Responsible
Soy and Palm Oil.
Animal proteins

The Letter to Parliament about the Insects for feed, food andpharma Green Deal67 outlines the Dutch government’s
commitment to improve the potential uses for insects.
These efforts have brought the use of insect protein in feeda step closer. Furthermore, the Netherlands is making thecase in the EU for to allow the use of animal protein derived
from offal and approved pigs and poultry in pig and poultry
feed. A careful approach is preconditional in this respect, inorder to prevent another BSE outbreak and violation of theanti-cannibalism principle. The use of such animal proteinsis currently already allowed for pisciculture feed.
Regional cultivation

Dutch policy is also aimed at reducing the importdependency for raw materials. The Cabinet champions
sustainable regional cultivation and the development ofalternative sources of protein. Within the Agri & Food Top
Sector, specific room has been created for relevant research
proposals. Ongoing studies currently explore how Dutch
soy cultivation can be fostered, for example, throughresearch into strain and culture improvement. A promisingalternative source of protein is sea cultivation of algae andseaweed; this may contribute to expanding biomass

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44 | A Circular Economy in the Netherlands by 2050

production on a regional scale. The first “sea farms” havenow been set up.
Optimum utilisation of biomass and foodSustainable consumption

As indicated in the Food memorandum, the Cabinet iscommitted to sustainable consumption. The manner inwhich consumers deal with their food, in terms of bothpurchase and use, impacts the use of farmland andresources. For this reason, consumer behaviour plays a keyrole in the pursuit of sustainable food production. Dietaryadjustments, for example, the use of alternative proteins,
can yield benefits for both the environment and publichealth. Knowledge of (consumer) behaviour, education,and culture are equally important as, if not more important
than, technological innovation in this respect.
Food wastage

The Cabinet is committed to minimise food wastage.
In its response to the initiative note Aanpak voedselverspilling[Tackling food wastage] submitted by MP Dik-Faber, in its
response to the aforementioned WRR report, and with theLetter to Parliament “Rapporten voedselverspilling” [Reports
on food wastage]68, the Cabinet has outlined its policy tocombat food wastage. The focus is on monitoring, consumer
information, revision of best-before dates, food banks,
innovation through the Agri & Food and Horticulture &Cultivation Materials Top Sectors, the removal of statutory
obstacles, and positioning this topic on the European andglobal agendas.
Residues

In the context of a circular economy, it is important that
offshoots and residues are regarded as base materials rather
than waste. Various residues from the food industry, such as
beetroot pulp and brewery dregs, are already processed
within the feed value chain. Under certain conditions,foodstuffs that are no longer fit for human consumption
will be converted to feed. Base materials are thus preserved
within the food value chain. In this context, theNetherlands has successfully advocated that vegetable
residues suitable for processing into feed are no longer
regarded as waste. The Circular Economy Action Plan of
the European Commission comprises a proposal for
amendment of the waste regulations. This amendment
harmonises the use of such residues for feed.
Loop closure
From Waste to Resources

The Cabinet endeavours to support initiatives aimed atclosing biomass loops, producing recycled raw materials,
and the maximum and multiple valorisation of biomass.

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Presentation of reports on food wastage, 18 August 2016

interview

Saving kilos of food
‘At the Albert Heijn supermarket chain, I started asa trainee in the department responsible for sustainability.
Of course, as a child I learned to finish my plate, not throw
away food. Only during my traineeship I saw with my own
eyes how much foodstuffs we throw out. I just had to dosomething about that.

‘… as a child I learned to finish
my plate … ’Together with three other trainees I submitted a proposal
to the Jong Ahold ideas contest to start a pop-uprestaurant using the left-overs of the AH supermarkets.
And we managed to set up such a restaurant: in theWestergasfabriek in Amsterdam. Instock, as we called theFoundation that ensued from the contest, now has two
branches: one in Amsterdam and we recently opened
another one in The Hague.’‘The restaurants are where everything comes together.
But we also want to encourage people to prevent wastage.
Our next step is the upcycling of product development.
For example, with our spud beer: rather than malt, we use
potatoes that would otherwise have been thrown out.
We have also developed a cookery book focused on thepreservation of food.’‘The next step is to replace our van that we use to collectproducts from Albert Heijn supermarkets, with a slightly
bigger electric van. This will allow us to make runs every
other day, rather than every day. Unfortunately, nowadays
you need a HVG licence to drive such vehicles. The govern­
ment could do something about that, in addition of course
to raising public awareness regarding food wastage.’

Selma Seddik
Co-founder of Instock
Government-wide Programme for a Circular Economy | 45

Examples include the “Grondstoffenfabriek” [Raw materials
plant] Green Deal initiated by the water authorities toextract valuable raw materials from waste water, and the“Business with biomass and biobased gas” Green Deal.
Soil quality

The preservation of a fertile and healthy soil is vitally
important to be able to produce biomass for food and otherpurposes. Soil quality is pressured by the intensive agricultureof the Netherlands. To maintain the long-term health andproductivity of the soil, it is important that the soil contains
sufficient stable organic matter and optimum volumes ofnutrients. Expanding stable organic matter in the soil
increases ecosystem services by expanding the water storage
capacity, increasing resistance to diseases and infestations,and retaining carbon in the soil in order to combat climatechange.
Nutrient cycle

In addition to good soil management, we need to pursue
closure of the nutrient cycles. This involves essential
nutrients such as phosphate, nitrogen, and micro nutrientssome of which are potentially scarce (phosphate) andwhose extraction, production, and use may also cause
environmental problems (eutrophication, greenhouse gas
emissions, and pollution)69. Efforts are made to optimise
the recovery of nutrients from residues in order for them tobe reused. However, large sections of the Netherlands fail toachieve the target values set for ground and surface water
quality. The Dutch manure policy encourages farmers tominimise the input of nitrogen and phosphate in thecultivation of their crops. This promotes the efficient use ofnutrients in agriculture.
Precision farming

A next step in closing the nutrient cycles is the developmentof precision farming, in which nutrients are used in theright place, in the right quantities, and at the right time,thus ensuring that fewer nutrients are wasted. This also
prevents nutrient leakage into the environment, which
could cause eutrophication issues. This is encouraged by
an extensive innovation programme rolled out within theAgri & Food Top Sector. One of the challenges is the reuse ofrecycled nutrients, by the application of technologies suchas precision farming.

by 2030. Under the SER [Social and Economic Council of theNetherlands] Energy Agreement, the SER Fuel Vision, andthe Biomass Vision for 2030, the Cabinet and various NGOs
are expending substantial efforts in the fields of bio-energy,
biofuels and sustainability criteria. Biomass is indispensable
for replacing fossil resources in the chemical industry andin plastics. The biobased economy is already growing
steadily.70
Chemical production in the Netherlands based on biomass:“green chemistry”

In addition to climate benefits, green chemistry offers
opportunities for new investments and employment, forexample, biochemical plants for bio refinery and the
production of advanced biofuels, biobased chemicals andmaterials. The Top Sectors have launched an extensive
innovation programme to foster this development.71 Thisshould make it possible to unravel biomass into various
high-grade components for different applications.

5.1.5 Planned actions
Sustainable biomass and food production
Food

The Ministry of Economic Affairs recently commissioned theNetherlands Environmental Assessment Agency (PBL) to
explore what is required to make the food value chain morecircular.72 PBL has indicated that interconnectivity between
policy areas must be improved. In addition, PBL has
identified preconditions for a circular food system:
sustainable use of resources (soil, water, minerals) in the
Netherlands and beyond, and optimum use of food andresidues. In the progress memorandum regarding the Food
Agenda, to be published this autumn, this PBL policy
memorandum will be taken into consideration.
Sustainability frameworks and criteria

A host of systems are available to safeguard the sustainableproduction of biomass using ecological and social
sustainability criteria. With respect to the origin of biomass,for example, it is important to avoid any evasion of
ecological or social responsibilities at the international
level. However, these sustainability criteria differ from one
type of biomass, region, or application to the next. Thisdifferentiation has produced a wide range of certification
schemes, resulting in high cost and lack of clarity for both

Replacing fossil resources by biomass: biobased economy

The Biomass Vision for 2030 sets out the target of reducing
the share of fossil resources in the Dutch economy to 70%

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Advisory report by the Soil Protection Technical Committee (TCB),
Toestand en dynamiek van organische stof in Nederlandse landbouwbodems[Condition and dynamics of organic matter in Dutch agriculturalsoils] TCB A110 (2016)46 | A Circular Economy in the Netherlands by 2050

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Monitoring Biobased Economy in the Netherlands 2015, no. 2016
D10576, March 2016

71

Top Consortium for Biobased Economy Knowledge and Innovation(TKI-BBE) Onderzoeksagenda Bio-based Economy 2015 – 2027 [Biobased
Economy Research Agenda for 2015-2027]

72

PBL policy memorandum Voedsel voor de circulaire economie [Food forthe circular economy], 2016

producers and processors of biomass: for example, it isunclear which certification schemes should be used, sinceeach buyer imposes different requirements that have to be
met by producers. In addition, it is not always clear for
producers which schemes can be used to designate an end
product as sustainable. For this reason, coordination of theexisting sustainability frameworks for biomass would be
advisable. The existing biomass sustainability frameworks
can be used as a point of departure to this end.
Biomass can compete with other raw materials in a lot ofapplication areas. Biomass increasingly needs to meetsustainability requirements, whereas other raw materials
are not scrutinized by any sustainability frameworks. This
leads to unfair competition between biomass and other raw
materials. For this reason, a single sustainability framework
for all raw materials would be advisable:• Harmonisation of biomass sustainability frameworks atthe EU and international levels;• Survey of sustainability systems and exploring options
for a single sustainability framework for all raw
materials;• Facilitation of public-private collaboration initiatives
involving biomass sustainability criteria in terms ofstandards, certification, and chain of custody (NEN andGreen Deal Green certificates);• Facilitation of voluntary sustainability reports forbio-energy producers, as a follow-up to the
Sustainability of Solid Biomass Green Deal.
Criteria at the product level

In order to be able to ensure that circular biobased products
can meet the sustainability requirements, the government
will focus on producer responsibility, among other ways,
through financial incentives, encouraging quality assurance,and hallmarks (for more details, see Chapter Four).
Criteria for cycles

In addition, integrated assessment methods will be
developed and tested to assess sustainability, and theeffectiveness and feasibility of loop closure measures.
Wageningen University and Research Centre is developinga Cycle Test, specifically designed for the food cycle, which
may be used by a range of stakeholders. This approach will
be used as the basis for further action.
Future of Forests and Timber Action Plan

Representatives of the Dutch forest and timber sector are
drawing up an Action Plan regarding the future of forests
and timber, together with Nature organisations, which will
be published in the autumn of 2016. This action planaddresses the question in the National Nature Vision, viz.
how the forest and timber value chain can meet the growing
demand for wood in a green circular economy, inan ecologically, economically, and socially sustainable

manner. Within the Netherlands, expanding the productionof timber by encouraging afforestation and a responsible
growth of the timber harvest can make a significant
contribution to CO2 sequestration and the expansion of thedomestic biomass supply. The Cabinet supports thisinitiative and strives to increase Dutch production of timberby encouraging afforestation and the responsible growth of
the annual timber harvest.
Optimum utilisation of biomass and foodResidues

Biomass usage calls for optimum-level use of all elements
and high-level reuse of (food) residues. However, the statusof a residue is not always clear. Some residues are regarded
as waste whereas they could be perfectly suitable to beprocessed into, for example, feed. To clarify this distinction
and the associated conditions, a framework is being drawn
up in collaboration with the sector, comprising guidelines
for the business community and various supervisory bodies
involved, such as the Netherlands Food and Consumer
Product Safety Authority NVWA, the Human Environment
and Transport Inspectorate ILT, and regional environmental
authorities. In the pursuit of a level playing field acrossEurope, we are consulting with other member states andthe European Commission regarding harmonisation of thesubstantiation of this distinction. Within Europe, theNetherlands is making a case for maximising the options for
useful applications of raw materials, and preventing foodresidues from prematurely being regarded as waste.
Furthermore, CSR Netherlands is supporting entrepreneursin the valorisation of residues in the agro sector, throughthe “Circular Enterprises Expedition”.
Actions to achieve optimum usage based on the Biomass
Vision for 2030 include:• Facilitating cross-sector collaboration aimed at highlevel biobased business cases (Agro Paper Chemicals /Bio-renewables Business and sustainable biofuels
platforms);• Wherever possible, supporting private initiatives in thefield of commodity formation of residues;• Facilitating collaboration between minor timber
suppliers and new wood-using sectors;• Supporting the development of revenue models forbiomass cycles by area organisations. This ties in with
the IUCN/Nijenrode Green Finance Academy.
Cascaded use

In the aforementioned policy memorandum, theNetherlands Environmental Assessment Agency PBL
advocates the adoption of cascaded use as a rule of thumband providing room for a tailored approach. Following new
developments and practical experiences with cascading, thispolicy concept is being continuously improved in order toGovernment-wide Programme for a Circular Economy | 47

optimise its applicability to the reuse of biotic residues andfood. Low-grade use of residues can sometimes yield more
benefits than high-grade use: for example, if purification ofpolluted residues would require a great deal of energy. In
addition, the multiple valorisation of residues could begiven more consideration. This would improve the options
for biomass usage and enable, for example, the productionof recycled nutrients, soil improvers, energy or other basematerials, along with food and feed.
Smaling motion and the elaboration of the commitment
regarding cascaded use

The Smaling motion73 requests the Cabinet to amend
biomass policy in such a manner as to accommodate theconsiderations of the Royal Netherlands Academy of Arts
and Sciences (KNAW). In its letter dated 23 January 201674,
the Cabinet already commented on the KNAW views
regarding the use of biomass, and indicated how these will
be taken into account in bio-energy and biofuels policy.
The Cabinet has promised the House of Representatives75
that the 25 PJ of co-combustion of biomass in coal-fired
power plants will be included in this elaboration, in order
to be able to encourage the cascaded use of biomass andfoster the circular economy, without compromising theachievement of renewable energy targets. The four actions
set out below substantiate the motion and theaforementioned commitment.
Optimisation of SDE+ regulations
A study has been launched to explore whether regulatory
obstacles in the Sustainable Energy Incentive Scheme +(SDE+) can be removed, in order to allow the use of bio
refinery (residual) materials as a support fuel. The study
specifically examines the approval of lignin as a fuel,whereby lignin is released as a residual substance inwood refinery. The use of pyrolysis, torrefaction, andcarbonisation fuels has already been approved earlier.
Consultations are underway with parties in the chemicaland energy sectors in order to explore which components(other than lignin) could be approved. In accordance with
the Biomass Vision for 2030, this will enable the shift fromcombustion to valorisation and combustion, and foster thebiobased economy.
Combustion of waste wood
The aim is to allow less clean waste wood (“B-wood”) asa fuel in some SDE+ categories. This will possibly reduce theamount of fresh wood and clean waste wood (“A-wood”)
that is used to generate energy (which will then become
available for alternative uses). This issue is currently being

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General Consultations, 23 March 201648 | A Circular Economy in the Netherlands by 2050

studied. Important preconditions are that the current
environmental requirements are met and that the efforts
will not hamper the achievement of the targets forrenewable energy and wood recycling.
Bio steam SDE+
Furthermore, consultations have been initiated with parties
in the chemical and energy sectors to optimise the SDE+
category of industrial steam from wood pellets (bio steam).
The replacement of gas-fired boilers by biomass boilers willconsiderably enhance the sustainability of the chemical
sector. In addition, it offers opportunities for synergy inlogistics value chains of sustainable biomass, the sharing of
infrastructure/facilities, and the supply of industrial heat/steam between parties within industrial clusters (forexample, in the industrial clusters in the ports of
Amsterdam, Rotterdam, and Eemshaven).
ILUC biofuels directive
With respect to biofuels, the Indirect Land Use Change(ILUC) Directive allows member states, among other things,
the freedom to set their own limits for the incorporation of
conventional biofuels, with a maximum of 7%. The directive
also comprises an indicative sub-target of 0.5% for the mostadvanced biofuels. The implementation of the ILUC
Directive marks is an effective step towards enhancing thesustainability of biofuels and the promotion of advanced
biofuels. In the autumn of 2016, the Minister for theEnvironment will inform the House of Representatives
about this in more detail.
Loop closure
Nutrients cycle and soil quality

Together with the agriculture and waste sectors, we are
exploring potential measures for enhancing the volume ofstable organic matter in the soil, for example in order torecover organic matter from residues, improve soil quality,
sequester carbon in the soil, and counteract soil subsidence.
This ties in with the French 4 pour 1000 initiative aimed atincreasing the proportion of organic matter in the soil by
0.4 percent annually for the purpose of improving soil
fertility, food security, and achieving the Paris climate
targets. The Netherlands supports this initiative.
Fertilisers Regulation

There is a huge potential for the recovery of nutrients suchas phosphate from residues such as manure, waste waterand purification sludge, and from industrial processes, thus
contributing to the development of a circular economy. The
proposal presented by the European Commission to review
the Fertilisers Regulation expands the harmonisation of the
trade requirements for artificial fertilisers to organic
fertilisers, soil improvers, and growth media. This cancreate more room for the production of artificial fertilisersfrom secondary (recycled) fertilisers, such as base materials

from waste (water), compost, digestate, animal manure,and other animal by-products. For example, in the future
the Fertilisers Regulation may enable the EU trade ofrecovered fertilisers such as struvite without a waste label
but with a CE marking. These products thus lose their waste
status and, in addition, reach their final status under the
Animal By-products Regulation. This removes somesignificant obstacles to the reuse of these products.
Under the Dutch presidency, the consideration of thisRegulation was initiated. The proposal is expected to be
adopted in 2018. Expanding the scope of this Fertilisers
Regulation to include these new fertilising products, andthe possibility of using residues to this end renders the
Netherlands less dependent on fossil resources (such as
natural gas, phosphate, or potassium), some of which havebeen designated as critical by the Commission. In addition,organic fertilisers may make a positive contribution toincreasing the organic matter content of the European soils.
Nutrients platform

In collaboration with the Nutrients Platform, the Cabinet isworking on the creation of a European and global market
for recycled nutrients in sustainable agriculture, focused on
knowledge exchange and development regarding
sustainable innovations and setting up smart coalitions/partnerships. This will be substantiated by permanent
support to the implementation of the Ambitie Nutriënten
2018 [Nutrients Ambition 2018] of the Nutrients Platform(a comprehensive agenda that also considers therelationship with micro nutrients, organic matter(humic acid), and soil improvement). This Ambition
comprises, for example:• an exploration of the options and opportunities forrecycling and sustainable reuse of nutrients other thanphosphate and organic matter;• potential supplementary and effective policy measures
aimed at the substantial expansion of the use of recycled
nutrients.
At the international level, the Cabinet continues to invest in
strengthening the European Sustainable Phosphorus Platform andthe Global Partnership on Nutrient Management. Additional
efforts will be expended on the implementation and further
development of international Green Deals aimed at promoting
an international market for recycled nutrients.
Furthermore, the Cabinet will promote the development ofinternational Green Deals aimed at combining balanced
precision fertilisation with nutrients cycle closure, and the
support of circular agriculture in Eastern and Southern
Europe (cf. Paragraph 4.5).

Replacement of fossil resources by biomass (biobased economy)

In addition to comprehensive energy and climate policy, thefocus on biobased economy will be continued, among
other ways through Top Sector policy. Manufacturers ofchemicals, plastics and other materials (such as paper,building materials, et cetera) would like to see an
integration of renewable energy and climate adaptation
policies by focusing on a single parameter, viz. CO2eq. For
more details, see the measures outlined in Paragraph 4.2.
Chemical production in the Netherlands based on biomass:“green chemistry”

The sector has requested better incentives, in particular for
the investments in the first commercial biobased plants in
the Netherlands. Companies assess potential locations on
the basis of a combination of clustered facilities andfinancial support, for example, in combination with the
production of renewable energy (under the SDE+
arrangement) or biofuels (through the blending
requirements). Consortia have entered into a dialogue withthe government regarding upcoming investments in thedevelopment of, inter alia, sugar chemistry, timber refinery,and pyrolysis. In consultation with the regions, the existing
tools will be used to the full in order to support companies
with concrete biobased investment plans. We are exploring
potential tools to be developed supplementary to theaforementioned investment fund in order to realise theseinvestments in the Netherlands.

5.2 Plastics
5.2.1 Why this priority?
Increasing use

The use of plastics has increased twentyfold over the past
fifty years. Expectations are that plastic use will double once
again in the twenty years ahead. The worldwide productionof plastics has risen to 299 million tons in 2013,
approximately 20 percent of which are produced in Europe.
The majority of plastics are used in packaging. In Europe,
their share accounts for nearly 40%. At the same time,increasingly more biobased and biodegradable plastics aremarketed, as an alternative to fossil plastics.
Urgency for the environment

The range of applications for plastics has expanded
enormously: from industry to households, from foodpackaging to wind turbines. This can be attributed to thediversity of material properties, such as a low weight andrelative strength. In the food processing and food packaging
sectors, plastics have contributed to the improvement ofhygiene and product shelf life. A major challenge withrespect to plastics is reducing the dependency on fossil
resources. In addition, large volumes of plastic end up as
Government-wide Programme for a Circular Economy | 49

interview

Ocean Cleanup
stands out to sea‘Even in high school, I was concerned about the plastic
soup issue. I went diving in Greece, and during my trip
I encountered more plastic than fish. In my TEDx talk –I was 18 at the time – I already announced my intention to
tackle plastic waste in our seas and oceans. “Why would
we move through the ocean if the ocean can movethrough you”; that became my motto. In 2013, I founded
The Ocean Cleanup.’‘This summer – with significant financial support from thenational government – we placed a purification unit in
the North Sea, 23 kilometres off the Scheveningen coast.
A 100 m long prototype, enabling the large-scale removalof plastics from our seas and oceans. This is the first test of
this kind in open waters.’‘The set-up will be tested for an entire year. The prototype
will thus be subject to every season, including the dreaded
North Sea storms. Such circumstances do not occur in the
Pacific in a hundred years. Sensors measure whether the
movements of the floating barriers behave according to
the advance calculations, and monitor whether they canwithstand extreme weather conditions.’‘I went diving in Greece, andduring my trip I encountered
more plastic than fish.’‘If this works out, we will place a 100 km plastic catcher in
the Pacific Ocean, between California and Hawaii, in 2020.
In 10 years’ time, this could clean up approximately half ofthe plastic soup in this section of the ocean.’

Boyan Slat
Founder and CEO of The Ocean Cleanup
50 | A Circular Economy in the Netherlands by 2050

litter, which does not belong on the streets or in the oceans.
One property of plastic is that it takes a long time todegrade, or it hardly degrades at all. In water, plastic
gradually degrades into increasingly smaller (micro andnano) particles. These particles – that can attract toxins –eventually affect the ecosystem and end up in our foodsystem (through, for example, birds and fish).
Potential for increased recycling

The separate collection of plastic waste is currently a hot
issue. Yet plastic recycling in the Netherlands lags behindconsiderably compared to the recycling of other material
flows. Only 34% of all plastics were recycled in 2012.
A particular improvement can currently be observed in therecycling of discarded plastic packaging, from 42% in 2012
to 50% in 2014. The target is 52% by 2017. The plastic
recyclate released can and must be used more efficiently andon a larger scale in the entire market.
Complex plastics market

The plastics market comprises a wide range of plastics, andfeatures a fragmented playing field with many small actors.
A great deal of plastic waste is still incinerated or exported,
resulting in considerable loss of value and failure to close
the loop. The development of the market for recycledplastics is still in full swing. Pure flows (in particular, PE, PP,
and PET) have a positive value; their collection and recycling
can be cost-effective. Recycling of mixed flows and foils is
not yet cost-effective. Furthermore, providing assurance tocustomers in the product value chain regarding consistentquality (“grades”) appears to be difficult. With respect tocomposites (fibre-reinforced polyester, et cetera), good andcost-effective recycling methods are not yet available.

5.2.2 Vision for 2050
In 2050, 100% renewable (recycled and biobased) plastics
will be used without any harmful impact on the environ­ment, wherever such is technically feasible. Plastics retain
their value, products have been designed in a circularmanner, we no longer depend on fossil resources for the
production of plastics, CO2 emissions have been reduced
drastically, and plastic litter is combated effectively. New
markets for innovative plastic recycling and biobased
businesses have opened up, circular business models have
evolved, and there is a solid market for recycled plastics.
International collaborations have been set up in order toclose the plastics value chain across the globe and thus
contribute to strengthening our natural capital.

5.2.3 Strategic goals
The realisation of this perspective on a national andinternational scale requires that:
1. Plastic products are designed in such a manner as toenable reuse and high-grade recycling after being
discarded;

2. Plastic materials in value chains are utilised as
efficiently as possible, which would lead to a reductionin the need for raw materials and the prevention of“leakage” in the system;
3. Optimisation of the renewable use of plastic material
flows, by large-scale usage of plastic recyclates andbiobased plastics, making use of biodegradable plastics
in specific situations in which such plastics have added
value for the circular economy (more effective joint
processing with biotic residues; pollution risks for themarine environment).

5.2.4 Ongoing efforts
VANG and plastics

Within the framework of the VANG [From Waste to
Resources] programme, significant steps have been takenover recent years towards closing the plastic cycle. Under
the Raamovereenkomst Verpakkingen II 2013-2022 [Dutch
Agreement on Packaging], notable results have beenachieved, with a considerable increase in the proportion ofcollected and recycled plastic packaging. This proportion
has currently already risen to 50%.
Upscaling of bioplastics production

Bioplastics constitute a growing international market,
in which Dutch companies rank among the leaders withrespect to production and processing. Several innovation
programmes have provided support, for example, theBiobased Performance Materials programme. Upscaling is
also fostered by Green Deals, such as the Green Deal on the
Raw Materials of the Water Boards that is working on
bioplastics (PHA) from sewage sludge.
The Cabinet supports the ambitions of the business
community to set up large-scale commercial production ofrenewable plastics in the Netherlands. Various chemicalclusters in the Netherlands view this as a key route in
improving the sustainability of the chemical sector, which
will bring the 2030 target closer.
Value chain agreement on plastic cycles

In 2013, at the initiative of the Ministry of Infrastructure andthe Environment, the national government concluded
a Value chain Agreement on Plastic Cycles with 55 parties involvedin the plastics value chain. This network (which has
meanwhile grown to comprise more than 90 parties),
shares knowledge and experience and look together foropportunities for innovation. In addition, various
stakeholders are collaborating on value chain projects
involving the use of recycled and biobased materials.
The parties have also jointly developed guidelines forthe circular design of plastic products (involving, inter alia,
the use of plastic recyclates).

Government-wide Programme for a Circular Economy | 51

Plastic bags

Discouraging use of non-recyclable products

With effect from 1 January 2016, giving away free plastic bags
is prohibited in the Netherlands. This ban has been
implemented in the context of a comprehensive policy to
reduce the use of all carrier bags. This approach is thesubstantiation of the EU directive aimed at reducing the useof plastic bags, and thus the prevention and reduction ofplastic litter on land and in the oceans (see Paragraph 5.5).76

The Cabinet is developing a set of tools to phase out certain
environmentally harmful products (or components ofproducts), especially those for which good alternatives are
already available. Products the Cabinet is considering in thisrespect include superfluous or non-recyclable packaging(multilayer packaging, such as for crisps and soup). It goes
without saying that any alternative must meet the same
primary requirements, such as prevention of food decay.
This will be addressed as a substantiation of European
policy. Together with the Sustainable Packaging Knowledge
Institute KIDV and others, pioneering tracks will be rolled
out aimed at developing sustainable circular designs.

Plastic litter in the oceans

The efforts to clean up and prevent (plastic) litter in theoceans are expended under the Programme of Measures forthe implementation of the Marine Strategy Framework
Directive (KRM), whose point of departure is an effective
source policy (prevention is better than cure) and which
comprises a micro plastics policy. Actions to retrieve plastic
from the oceans, such as the international The Ocean
Cleanup initiative, are actively supported.
Monitoring of plastic flows

In order to be able to conduct a focused substantive
discussion in the years ahead, proper monitoring of theplastic flows (production – usage – discarding – processing)is essential. In 2016, a start was made with the design ofa monitoring system.

5.2.5 Planned actions
Changing designs

The Cabinet endeavours to expand and intensify theEuropean Ecodesign Directive aimed at increasing the use ofplastic recyclates, upcycling, longer shelf lives, andimproved repairability of plastic products. Together withother member states, the Netherlands is going to explore
how this European approach can be supported andaccelerated. Together with the NEN Institute, more CEN/ISO
certification tracks will be developed in order to enhance
confidence in plastic recyclates.
The programmes aimed at promoting circular design will
also be tailored to companies in the plastics sector, basedon the aforementioned guidelines for designing with plastic
recyclates. The body of thought underpinning the concrete
approach and the results of these design programmes andguidelines will be disseminated on an international scale inorder to inspire others to initiate similar projects.

76

Directive (EU) 2015/720 of the European Parliament and the Council
dated 29 April 2015 to amend Directive 94/62/EC concerning the
reduction of the use of light-weight plastic carrier bags.

52 | A Circular Economy in the Netherlands by 2050

Innovation

Innovations aimed at returning plastics into the cycle at thehighest level possible will permanently be fosteredthroughout the plastics value chain through the network set
up under the plastic cycle value chain agreement. This
specifically pertains to waste prevention, the design ofplastic products, and the development of alternatives (to,for example, multilayer packaging). A quality assurance
system for “grades” must be set up (consistent composition)and the possibilities for mechanical and chemical recyclingof (composite) materials need to be explored in more detail.
An important point of attention with respect to closing theloop is mutual confidence in the product supply chain. The
Cabinet will make an effort to create cooperation andcommitment.
The Chemical Top Sector has rolled out the Biobased
Performance Materials programme. Under this programme,
companies and knowledge institutes are working on
improving the quality of bioplastics and the expansion of
their uses.
Usage of renewable (recycled and biobased) materials

More production companies (brand owners) will be
involved in the finalisation of the plastics cycle value chain
agreement in order to upscale market demand for recycled
and biobased plastics through voluntary arrangements(such as those made under the Eco label). Furthermore,circular procurement by both governments and large
companies will further support (European) market demand.
International Europe-based companies are encouraged toadopt circular procurement at the global level.
Within the framework of the plastics transition agenda to
be drawn up, the Cabinet aims to explore, together withprivate sector parties, to what degree renewable plastics,
recyclates, and biobased materials can be incorporated into
the production process. On the basis of this data, target
figures will be set down, together with the plastics sector,
that can be adapted to the technological feasibilities of
blending in these renewable plastics. The study will also

consider the options for setting down agreements on
a conversion to biodegradable plastics, as requested in the
Van Gerven motion.77
Manufacturers marketing packaged products pay a fee to the
Packaging Waste Fund (Afvalfonds), which is used to pay,inter alia, collection and recycling costs. One of the itemson the transition agenda may involve a positive financial
incentive for companies marketing products packaged inplastic in order to encourage the use of these renewablematerials. Such an incentive may be created bydifferentiating the rates that currently apply to plastic
packaging, which would increase the demand for such
renewable materials. This market incentive will be exploredduring the evaluation of the outline agreement, in
consultation with the outline agreement parties.
Subsequently, if it is in line with the transition agenda, andthe wishes and possibilities of the outline agreement
parties, further agreements will be made in this regard.

the field of plastics clearance (through various dredging
systems), but also regarding the prevention of marine litterby circularising local and regional cycles. An example of thisis the Clean Urban Delta Initiative Rio de Janeiro78, ensuing fromthe plastics value chain agreement network. In the years
ahead, this integrated approach towards the circular
economy will be rolled out in other urban deltas via
subsequent climate adaptation missions, such as the
Cabinet mission to Indonesia in November 2016.
Opportunities will also be explored for upscaling national
Green Deals (such as the one pertaining to the Shipping
waste value chain) and the Plastics Cycle Value Chain Agreement
to the European and global levels in the form ofInternational Green Deals (cf. Paragraph 4.5).

5.3 The manufacturing industry
5.3.1 Why this priority?

Uses of biodegradable plastics

Furthermore, the Cabinet is focusing on clarifying thepotential uses of biodegradable plastics that may becomposted or fermented in their end-of-life phase. Suchuses may be found in, e.g., the food value chain and the
medical sector. Biodegradable plastics are used increasingly
and specifically in cases involving high risks to theenvironment. Clarity towards consumers, municipalities,
and the waste and recycling sector as to how to deal withthe various types of plastics is essential.
A study is currently underway into biodegradable plastics inrelation to the existing and future recycling market, inwhich the consumer perspective (simple explanations of
the ways in which various materials can be presented towaste collectors) and the combat of litter aspect are taken
into account. In 2017, this study will generate a Cabinet viewon bioplastics, and serve as input for the EU Strategy on
Plastics that will be presented by the European Commission
at the end of 2017.

Sectors such as electronics, machinery and systems industry,
automotive industry, electric transport, aerospace, andsustainable energy technologies use increasingly more raw
materials due to a growing demand for products andservices.79 Across the globe, extraction and processing ofthese raw materials cause environmental and climate issues
as well as other sustainability problems. At the same time,
the supply of raw materials such as scarce metals isparticularly limited. Such raw materials originate from only
a few source countries and conflicts hamper accessibility ofthe supply. Moreover, raw material extraction is becoming
increasingly laborious as a result of, inter alia, declining ore
quality. Another challenge is the required short-term
upscaling of metal and mineral extraction in light of therapidly increasing demand for metals and minerals. Mining
projects involve a long start-up. Without a change in policy,
the relatively limited availability of certain raw materials
will lead to increasing dependency and geo-politicaltension, while negatively impacting companies as well as
regional and national economies.

International closure of the plastics value chain

The Netherlands has taken the initiative to organise an EU
conference on Plastics in December 2016, which will serve
to share knowledge and experience regarding innovations,to strengthen European networks, and explore ways to close
the loop at the European and global levels.
The plastic soup issue that is growing all across the globe
needs to be tackled, but also offers opportunities for the
Dutch business community in the maritime, waste, andrecycling sectors to valorise our knowledge and expertise in

77

Parliamentary Documents II, 30 872, no. 140

78

See footnote 62.

79

TNO, follow-up study Materialen in de Nederlandse economie [Materials
in the Dutch economy], December 2015; Rene Kleijn, Ester van derVoet, 21 July 2010, Resource constraints in a hydrogen economy based on
renewable energy sources: An exploration, Elsevier. And: René Kleijn et al,
1 July 2011, Metal requirements of low-carbon power generation, Elsevier;
Joint Research Centre European Commission, Critical Metals in the Path
towards the Decarbonisation of the EU Energy Sector, 2013
Government-wide Programme for a Circular Economy | 53

A source of concern is that most businesses pay relatively
little attention to the topic of supply security and the rolea circular economy could play in this respect. This calls forraising awareness and new revenue models that reduce
dependency on raw materials and thus the environmental
impact.

Increasing efficiency and high-grade sustainable reuse of metals
and minerals in all steps of relevant value chains

In 2016, TNO assessed the options for a more efficient andsmarter use of metals in over 1000 products. This could
generate considerable material savings and added value.
Developing new ways of producing/consuming

5.3.2 Vision for 2050
The Cabinet is advocating a gradual development towards
a high-quality circular manufacturing industry, in which thedemand for (scarce) raw materials is met by raw materials
from the value chain wherever possible.
By 2020, the Dutch business community will be wellinformed about the vulnerability of natural resources andsupply security. Dutch companies see the opportunities
arising from an overall European raw materials infra­
structure. This will accommodate the growing demand formetals and minerals ensuing from the energy transition.
By 2050, critical metals such as rare earth metals will be
upcycled at a large scale, for example, in industrial material
pools in Europe. In addition, a highly sustainable rare earth
metals mine will have been opened in Europe under the EU
Raw Materials Initiative. The “urban mine” (built-up
environment as a “mine” for new raw materials) will havebeen exploited and accounts for a substantial proportion ofhigh-grade industrial raw material flows. A considerable
part of the material needs of basic facilities in the
Netherlands will have been met.
The use of foreign raw materials will have been reduced
dramatically and remains within the capacity of the Earth.
Supply security issues will have been resolved by the shift
from fossil to renewable raw materials, and from “critical”
metals and minerals to generally available ones. In addition,
efficiency will have been enhanced in all the steps of thevalue chain, and high-grade reuse of metals will havebecome the standard.

5.3.3 Strategic goals
The vision above has been translated into five strategic goals
for the circular manufacturing industry.
Shift from critical raw materials such as metals and minerals togenerally available raw materials

Many companies use critical metals and minerals for theirincreasingly complex products. As this entails long-termrisks, we need to explore ways of using generally available
metals and minerals as substitutes.

54 | A Circular Economy in the Netherlands by 2050

The future global economy of products and services calls forlarge volumes of primary raw materials and energy.
Accordingly, we will need new production and consumption
systems using sophisticated printing technologies (forexample, printing food) and includes products made ofself-healing and shape-shifting materials that prolong their
shelf life.
Bundling public and private demand for circular products andservices

Along with the supply side, the demand for circular
products and services will need to increase in order tocomplete the circular business cases. Companies andgovernments play a key role in this by adopting socially
responsible procurement.
Shift from fossil to renewable raw materials

In the near future, fossil carbons can largely be replaced byshort-cycle carbons. This has already been achieved ona small scale with heavy chemicals such as ethanol,
methanol, butanol, and acetic acid. When properly used,
this contributes to reducing CO2 and reduces dependency
on scarce or volatile raw materials.

5.3.4 Ongoing efforts
Over recent years, the Cabinet has focused, often incollaboration with the Top Sectors, on the development anddissemination of knowledge relating to supply security. The
ongoing projects and/or activities are listed below.
CBS Material Flows Monitor

The CBS [Statistics Netherlands] Material Flows Monitor isused in the follow-up study Materials in the Dutch economy:
supply security risks for 64 metals and minerals, the developmentof a self-assessment tool for businesses, the Circular potentialof product groups study, the Raw Materials and the Circular Economy
Knowledge Plaza website to be launched, and the design ofa regional tool to promote regional circular businessmodels. In order to provide insight at the company or value
chain level into the relationship between the use of raw
materials and natural capital, application of the Natural
Capital Protocol will also be promoted.

interview

A smartphone withsocial values‘Fairphone was launched in 2010, as an awarenesscampaign. Two years later, some individual employees
decided to take it to the next level and establish
an independent company, with financial support from
Waag Society.’‘Reflecting on design isa means to reform systems …’‘Fairphone is currently a social enterprise, based on theidea of establishing a movement towards more honest
electronics. We expose the production and distribution
systems, thus revealing how smartphones are made andwhat challenging issues are involved. This gets a debate
going on what is actually fair. Social and ethical values areleading in this respect. Thus we have a positive impact on
the entire value chain: the design, the production and thelifecycle of a smartphone.

‘Personally, I am driven by the concept of sustainability.
Reflecting on design is a means to reform systems,
to actually bring about a better, more honest world.
Fairphone is not just a movement. It is also a product anda company. This enables us to launch a wide range ofactivities, from the development of long-lasting,sustainable products to the use of honest materials.’‘We are attempting to gradually upscale our production to
an average annual sales level of some 100,000 phones
a year. This would have to provide us with sufficient scopeto achieve our social and environmentalist ideals in thelong run. It is important for both the government andother companies to realise that they have to keep creating
conditions to boost businesses that have alreadyembarked on sustainability.’

Miquel Ballester
Co-founder of Fairphone
Government-wide Programme for a Circular Economy | 55

CIRCO Project

The aforementioned Creating business through circular design
CIRCO project has been initiated by CLICK NL, the Top
Consortium for Knowledge and Innovation for the creative
industry. This project involves workshops to help entre­
preneurs and designers in the manufacturing industry set
up the development of new circular products, services, andbusiness models.
Circular Metal Value Chain initiative

The Circular Metal Value Chain initiative ensued from the VANG
[From Waste to Resources] programme. Under thisinitiative, all the value chain partners (raw materials trade,
tooling, processing, (manufacturing) industry, andrecycling) collaborate with training institutions, knowledge
institutes, and government parties in concrete projects toachieve high-level circular objectives, in terms of bothquantity and quality.

roadmap, published in May 2016, focuses on thetechnological challenges and opportunities that are
conducive to the development of a circular economy.
EU Conflict Minerals Regulation

The EU Conflict Minerals Regulation was endorsed on
16 June 2016. This Regulation is aimed at breaking up thelink between the trade in certain80 minerals and the fundingof violent conflicts in the areas in which such minerals are
extracted. The Dutch Ministry of Foreign Affairs has assisted
in setting up a sustainable tin value chain. A similar value
chain is being developed for gold.
Routes: Smart Industry, Circular Economy and Materials

Under the Dutch National Research Agenda, so-called“routes” are being developed comprising inter-related
cluster questions concerning topics such as Smart Industry,
and Circular economy and raw materials: sustainable circular impact.

Top Sectors roadmaps

Top Sectors roadmaps with innovation targets andassociated programme line up to 2020, fostering thetransition to a circular economy. The roadmaps pertain tosectors such as High Tech Materials, Lighting, Solar, Printing,Automotive, and Aeronautics. The cross-sectoral Smart Industry

80

3TG: tin, tungsten and tantalum, and gold.

The urban mine
Concreteand steelfrom buildings

Residualindustrial
heat

Source: PBL; http://themasites.pbl.nl/circulaire-economie/

56 | A Circular Economy in the Netherlands by 2050

Rare metals
fromelectronics

Materials
from cars
Glass and
paper fromhouseholds

5.3.5 Planned actions
The actions planned to achieve circularity in the
manufacturing industry have been bundled into eight
operational goals.
By 2020, 50% of the businesses must be aware of the risks andopportunities involved in metals, and have taken steps towards
circularity

Many medium-sized and small businesses are unaware ofpotential risks involved in the supply of raw materials, suchas supply interruptions and risks related to Corporate Social
Responsibility. In addition, awareness of the possibilities
for boosting the circularity of products is only limited. For
that reason, we are committed to the long-term operationand further development of the Raw Materials Knowledge Plaza,
including a self-assessment tool.
Companies will benefit from a long-term strategy for the
supply security of critical raw materials. To facilitate this,the Ministry of Economic Affairs has commissioned thedevelopment of a so-called “Raw Materials Knowledge Plaza”,
a method and IT tool to map out business risks. This will
become available at the end of 2016. The further
development of the Knowledge Plaza will comprise several
additional functionalities, including a helpdesk function,
trends monitoring, and an information desk for other EU
countries. Expanding knowledge regarding risks andopportunities must induce SME companies to take action
sooner.
Development of promising business models focused onenergy-intensive products with circular potential and­substantial export prospects

The Cabinet aims to encourage the development of circularbusiness models and explore, together with the manu­
facturing industry and in close collaboration with thecreative industry, energy-intensive products with circularand economic potential. To this end, promising circularbusiness models are being developed in five product groups.
TNO has mapped out promising product groups in its report
entitled Circulaire potentie van producten [Circular potential of
products]. The focus will be on the top 5 of these productgroups, with high circular potential and a large energy
impact. Raw materials savings thus go hand in hand withachieving climate targets. This could be a concerted effort byvalue chain partners (Circular Metal Value Chain, comprising
sectors such as the manufacturing and creative industries).
The Netherlands takes initiative for EU approach regarding risk
management of the supply of several metals by sustainable
extraction

The Netherlands is going to initiate the establishment ofa European Partnership for responsible minerals. The
exploration phases of the ICSR Covenants pertaining totungsten and tantalum, to be concluded by the Netherlands
Metallurgy Industry Association VNMI and the FME techno­
logy industry employers’ organisation, offer opportunities
for improving the sustainability of value chains and tapping
new urban mines. This Dutch initiative is aimed at
expanding the demand for and supply of responsible
minerals in order to encourage sustainable development indevelopment countries with mining prospects. The
partnership will also contribute to enhancing the supply
security of raw materials in this trade value chain.
Meeting material needs by national and international reuse

Discarded products, buildings, and infrastructure containlarge amounts of materials suitable for reuse: the urban mine.
An active focus on the rapid reuse of residues should coverpart of the Dutch need for new raw materials. Investments
in opening up this urban mine will foster the developmentof a new raw materials market.81
Boosting the EU Raw Materials Initiative (RMI)The RMI comprises three pillars, viz.:1) access to raw materials in international markets;
2) sustainable mining in Europe;3) raw materials efficiency and reusable materials throughrecycling.
One of the conclusions drawn during the European Raw
Materials Conference held in April 2016 was that thisinitiative must be underpinned by an integrated knowledge
infrastructure regarding raw materials supply security andcircular economy. Furthermore, Europe could mine one of
the last scarce earth metal supplies in European soil, theNorra Karr deposit in Sweden, in a highly sustainable
manner. The Water and Mining Platform gathers Dutch
expertise in order to facilitate such sustainable mining.
Development and implementation of a pilot involving e-waste
as an existing urban mine

The CBS [Statistics Netherlands] study entitled Green Growth in
The Netherlands 2015, presenting research data concerning
electronic waste, will serve as the basis for exploring
options for developing business cases in the Netherlands,
together with parties such as WeCycle.
Development and implementation of a pilot involving newsustainable urban mines in collaboration with the maritime
sectorIn its design of ships and platforms, and in its choice ofmaterials, the manufacturing industry can contribute to thereuse of materials, reducing the use of scarce raw materials,
and reducing the environmental burden. The EU and thenational governments can promote the sustainable81

See footnote 5
Government-wide Programme for a Circular Economy | 57

dismantling and recycling of ships and recreational vessels.
An EU Ship Recycling Regulation has been created to thisend. Within the next 15 years, 75,000 scrap ships will betaken out of service.
The Maritime Manufacturing Industry 2016 – 2018 action
programme, a joint effort of the business community andthe government, sets out a number of concrete actions thatgive impetus to the ambition of developing sustainableproducts and solutions, and contribute to achieving
a circular economy. For example, a plan will be establishedfor cleaning up the ocean and keeping it clean by removing
pollutants such as plastics and micro plastics, and theregulations pertaining to the environmentally responsible
and safe recycling of ships will be actively enforced.
Implementation of a strategic track with businesses andknowledge institutes involved, aimed at a long-term strategy for
raw materials supply security

Analyses have revealed minor and major vulnerabilities inthe Dutch economy with respect to raw materials supply
security involving metals and minerals. On the basis of the
raw materials scenarios of the International Resource Panel,
we will explore, together with relevant businesses andknowledge institutes, how the raw materials supply securityof the manufacturing industry is changing and whatstrategies can be employed to boost it. The metals andminerals required for the energy transition and climate
adaptation will explicitly be taken into account in this study.
Green Deals to be concluded with sectors and value chains thatare vulnerable in terms of supply security

Green Deals may help expand the use of sustainably
produced raw materials, including recyclates and biomass.
This calls for support for the development of an equivalentsustainability framework (level playing field) for all raw
materials, including fossil ones.
Together with businesses and knowledge institutes, we willseek leads in the various roadmaps to accelerate thetransition to a circular economy. Our aim is to set downa circular economy agenda within the Top Sectors(cf. Paragraph 4.3). Several round tables will be organised tothis end. A source of inspiration is the Remanufacturing
roadmap published by High Tech NL in 2013.
The energy transition involves an increase in the use ofcritical materials for generators, for example, in windturbines. The Social and Economic Council of theNetherlands (SER) has also requested attention to be paid tothis issue. With a view to the expected further increase,
options for drawing up a (circular) roadmap will be
explored under the Top Sectors policy.

Under the Electric Transport 2016-2020 Green Deal, theapplication of circular principles will be considered within
the cross-sectoral topic of electric transport (High Tech Systems& Materials, Chemical Industry, Energy, and Logistics). The
reuse of batteries provides concrete opportunities.

5.4 Construction sector
5.4.1 Why this priority?
Scope

Resource intensity in the construction sector is high. The
construction industry is estimated to account for 50% of the
raw materials used, 40% of total energy consumption, and
30% of total water consumption in the Netherlands. In
addition, a large proportion of waste in the Netherlands(approximately 40%) involves construction and demolition
waste, while the sector is responsible for approximately 35%
of CO2 emissions.82
The construction sector is distinguished in Commercial andNon-residential Building (Burgelijke en Utiliteitsbouw - C&NRB)
on the one hand, and Soil and Civil Engineering (Grond-,
Weg- en Waterbouw - S&CE) on the other. One of the reasons
why this distinction is relevant relates to the difference instructure: C&NRB largely involves private funding anda large, diverse playing field with many (major and minor)
stakeholders. S&CE often involves public commissioning
and features a smaller number of more homogenous
stakeholders.
Degree of circularity

The reuse of C&NRB construction and demolition waste isalready widespread (>95%), albeit that in many cases
materials are not reused at the same or a higher level. The
reuse rather involves, for example, construction rubble
being processed to granulate to be used as a foundationmaterial in S&CE. The bulk of the material is subsequently
reused at the same level in the S&CE sector; after one roadlife cycle, the rubble is reusable in other road projects.
The need for such foundation material in the S&CE sector is
expected to decrease, as this sector increasingly tends to use
residual material from other sources. This “saturation” in
S&CE generates an incentive for developing more circularuses for construction materials in the C&NRB sector.

82

58 | A Circular Economy in the Netherlands by 2050

http://www.ellemmi.nl/grote-duurzaamheidsopgave-voor-bouwsector/.html

5.4.2 Vision for 2050
The introduction of a circular economy in the construction
sector creates opportunities for innovation. The construction
sector focuses increasingly on energy savings and reductionof CO2 emissions, in both the construction and theoperational phases of a building. Opportunities arise forcutting down on raw materials and reducing residual andwaste matter. In addition, the circular economy cangenerate quality improvement and cost reduction
throughout an object’s life cycle.
This leads to the following vision:
By 2050, the construction industry will be organised in sucha way, with respect to the design, development, operation,
management, and disassembly of buildings, as to ensure thesustainable construction, use, reuse, maintenance, anddismantling of these objects. Sustainable materials will be used in
the construction process, and designs will be geared to the
dynamic wishes of the users. The aim is for the built-up
environment to be energy-neutral by 2050, in keeping with theEuropean agreements. Buildings will utilise eco system services
wherever possible (natural capital, such as the water storage
capacity of the sub-soil).

The scope of a circular economy for the construction sector
extends beyond the mere reuse of waste. A circular economy
for the construction industry calls for the following threequestions to be considered with respect to each building:1) How can we minimise the use of construction
materials? This involves not only the need for raw
materials, but also the options for reuse andtransformation of the building itself;
2) How can we meet the remaining material requirements
as sustainably as possible? The use of sustainable
construction materials should be considered here, as
should reuse;
3) How can we meet the material requirements still
remaining as efficiently as possible?
These questions also show that higher scale levels also playa part in a circular economy for the construction sector: thefunction of buildings and even urban development.

5.4.3 Strategic goals
The Cabinet wants to link the circular economy efforts inthe construction sector to actions that are already (partially)
underway. It is the Cabinet’s intention to have circular
economy activities in the construction sector tie in,wherever possible, with the energy objectives in both

Circular economy in the construction sector>95% Recycling

85% S&CE (= Soil & Civil Engineering)

Eventual saturation<3% returned to C&NRB(Commercial & Non-Residential Building)Internal recycling
within S&CE

Source: Rijkswaterstaat and National Institute for Public Health and the Environment RIVM (2015),
Policy exploration regarding circular economy in the construction sector. Figures are indicative on thebasis of Hofstra et al (2006), Scenariostudie BSA-granulaten, aanbod en afzet van 2005 tot 2025
[BSA granulates scenario study, supply and sale from 2005 to 2025]

Government-wide Programme for a Circular Economy | 59

inspiratiehuis 20|20interview

A healthy work
environment,a healthy employee‘Ten years ago, we changed course. Since then, we have
implemented all our projects on a Cradle-to-Cradle basis.
A prime example is Park 20|20, a Cradle-to-Cradle
Business Park, developed by Delta, and its partners
VolkerWessels and the Reggeborgh Groep, which is
focused on both people and the environment. To achievethis, we have taken an integral approach to all the flows(energy, water, biodiversity, et cetera), and usedsustainable C2C materials. This manner of construction
not only generates a pleasant office but also a healthyliving environment, which promotes productivity among
employees and reduces absence due to sickness.
As real estate developers, we saw the market change,for example, through the advent of flexiwork. However,society and the environment are also changing, as ourplanet accommodates increasingly more people and the
supply of resources continues to decline. We can change
this.

Rob van den Broek
Sales Director, Delta Development Group60 | A Circular Economy in the Netherlands by 2050

Circular processes ensure that our resources remain intact.
I firmly believe that everyone who is in a position to leave
the world a better place for our children should do so. It is
our good fortune, as developers, that we can create
tomorrow’s world.

‘… a pleasant office but alsoa healthy living environment,
promotes productivity andreduces absence due tosickness.’
Our next goal is the Valley development, a businessdevelopment environment near Amsterdam Airport
Schiphol, where we are joining forces to accelerate thecircular economy. I would like to widely share theknowledge and experience we are gaining there. The
government is indispensable in this regard. Not asa facilitator, but in a participating capacity, playing
an active role in the community.’

existing and new C&NRB and S&CE buildings and structures.
Efforts may be paired in the renovation and transformationof the existing supply, for example, from offices toresidential buildings. High-grade reuse can assist in
obtaining funding for transformation or demolition, or for
new construction projects. To realise its vision, the Cabinet
has elaborated a set of strategic goals, in which the goals set
out in the Biobased Economy Vision for 2030 have beenfactored in:1) C&NRB and S&CE to use (mainly) renewable raw
materials;
2) Optimising the use of material throughout thebuilding’s life cycle (value preservation, cost savings,
more reuse, lower environmental impact);3) Minimising CO2 emissions by the construction sector, inboth the construction and the operational phases;
4) As an innovative sector, the construction sector must
proactively respond to changes in society as well asprivate sector and consumer demands.
Another option is the deployment of legislation; the pointof departure in this respect is that the Cabinet will refrainfrom setting down any new legislation that would add tothe financial burden. The National Building Decree, for thatmatter, contains restrictive provisions regarding theenvironmental impact.83 It also contains provisions
regarding the separation of construction and demolition
waste. The legislation applicable to the construction sector
do not yet set out any specific provisions regarding resource
efficiency.
Key preconditions in the implementation of this policy arethat the construction sector assumes its own responsibility,
and that the government provides a level playing field,
contributes to the acquisition and safeguarding of
knowledge through pilots, and provides limited support
wherever such is required and advisable. Principals andbuilding users play an important part in this. The strategic
goals will be substantiated in more detail following
consultations with the relevant NGOs, in the context of theaforementioned transition agenda.

principals are already experimenting with circular economy
principles. Examples include Park20|20 in Hoofddorp, theOvertoom urban garden project, the Knoop national officeproject in Utrecht, the Brummen town hall, and the officeof a sensor manufacturer in Hengelo. Rijkswaterstaat will
open up the first biobased motorway service area on
October 26th, 2016.
Green Deals

Meanwhile, a number of Green Deals have been concluded
regarding circular economy in the construction sector.
Under the Circular City Green Deal, public and private partiesare collaborating at the local level to close the materials
cycle in the construction sector. The Circular Buildings Green
Deal focuses on the development of a “buildings passport”
outlining a building’s circularity. The construction sector
already has amassed several decades of experience in theuse of biobased construction materials. The Biobased Building
Green Deal was concluded in December 2015; as a follow-up,
a ready-to-market biobased house was exhibited at theInnovation Expo of 14 April 2016. The demand side is also
beginning to move now, for example, in the province ofNoord-Brabant and the city of Amsterdam.84 They areplanning to focus on the use of biobased construction
materials in new buildings and renovations, in keeping withthe circular economy. Their current challenge involves
upscaling the use of biobased construction materials.
The Infra-Nature Green Deal provides best practices and knowhow regarding the implementation of natural solutions in
the construction of S&CE infrastructure. With the Sustainable
S&CE Green Deal, this experience is widely disseminated to theother parties (principals and contractors) in the S&CE sector.
Under the Urban Green and Blue Values City Deal, pilots are carriedout involving the use of natural rather than technicalsolutions in area developments and new construction
projects. This generates savings in the use of raw materials
and cuts the cost of, for example, reducing heat stress orpluvial flooding.

5.4.5 Planned actions
5.4.4 Ongoing efforts
The circular economy is not yet generally accepted in theconstruction sector, yet various construction companies,
innovative start-ups, architects, municipalities, and83

Together with the national environmental database, the Assessment
method for the environmental performance of buildings and S&CE projects
constitutes the basis for the environmental impact assessment ofmaterial use. In actual practice, various calculation tools are used tothis end. Examples include GPR Gebouw, GreenCalc, DuBoCalc, and
BREEAM.NL. These tools use the assessment method referred toabove and provide reliable information on the sustainability ofa building or structure.

Sector agreements

Along these lines, the Cabinet is now encouraging theestablishment of a value chain agreement with the concrete
sector in 2017. The parties to this agreement will include
both raw materials suppliers, cement and concrete (mortar)
manufacturers, contractors, and concrete recyclers, but also
public and private principals. Principals on the governmentside include Rijkswaterstaat [the executive arm of the84

In the years ahead, the municipal authorities are planning to build
25,000 houses in an optimally circular/bio-based manner.

Government-wide Programme for a Circular Economy | 61

Ministry of Infrastructure and the Environment], ProRail,and the Central Government Real Estate Agency RVB. The
agreement is aimed at a substantial reduction of the annual
CO2 emissions during the production and use of concrete,achieving circularity in the value chain, and setting down
agreements on the preservation of natural capital.
In addition to this agreement on concrete, the Cabinet
plans to reach similar agreements on other construction
issues before 2020.
More innovative and circular construction projects

Together with principals such as corporations andmunicipalities, the Cabinet will explore the options foradding “substance” to innovations in residential and ­non-residential construction, in order to be able to launchinnovative concepts such as circular and biobased
construction at multiple locations and in multiple projects.
This could boost the business community’s willingness toinvest risk-bearing capital in innovative projects. This effort
will have to bear fruit by no later than 2020. The business
community must submit innovative concepts for new
materials and circular construction. Certification,
standardisation, and equivalence could contribute toaccelerating their application. The Smart Regulation
programme will submit concrete proposals to this end.
CO2 reduction

Furthermore, the Cabinet intends to initiate pilot projects
aimed at, e.g., gaining more insight into the options forCO2 reduction in the construction and operational phases.
The aim is to achieve optimum synergy with the activities
associated with the energy transition in the construction
sector. To this end, the projects will map out the existingenergy (savings) tools that can simply be supplemented,
with attention to circular and biobased use of materials andresources.
Reuse of materials

Pilot projects can also be used to encourage the further
development of a circular construction assessment method.
Separate attention must be focused on the quality of reused
construction materials.
The National Waste Management Plan (Landelijk
Afvalbeheerplan – LAP) plays a key role in this respect, as it sets
out the frameworks pertaining to permit application
procedures for construction and demolition waste.
The pilots are intended to not only focus on technologicalinnovation, but also on the social and system changes
required in the construction value chain in order to achieve
circularity.

Implementation agenda for innovation in the construction
sector

The Cabinet will present an Implementation Agenda forinnovation in the construction sector to the House ofRepresentatives by no later than the end of 2016. In the
Implementation Agenda, the government aims to:• gain insight into the prospects for innovation in theconstruction sector through a market-based approach(infrastructure, real estate, and housing). Points ofdeparture are the societal issues already identified andpilots drawn up in the context of the Round Table
discussions with representatives of the construction
sector and knowledge institutes;• develop widely supported policy statements, inconsultation with the sector and knowledge institutes,
regarding a number of overarching issues (digitalisation,
human resources, transparency, benchmarking,regulations, tender regulations, et cetera). The
municipalities will be involved in this process.
Innovation

The Cabinet will explore ways to remove asbestos fibres
using existing methods that will enable reuse as cleaned(construction) material.
Life cycle costs approach by Central Government Real Estate
Agency RVB

Through the RVB projects, the Cabinet can convert circular
ambitions into actual practice. This conversion is under­
pinned by the criteria for socially responsible procurement
and sustainable demolition, as this is where the environ­mental impact of materials plays a role. In addition, the RVB
uses the Life Cycle Costs approach in its projects wherever
possible.
Circular S&CE construction by the government

As the largest S&CE principals, RWS and ProRail can set
an important example for this sector. A distinction is madebetween the design, construction, and renovation phaseson the one hand, and the management and maintenancephases of structures on the other. For each of these phases,
tools will be developed enabling the RWS networks (themain roads network, the main waterways network, and themain water system) and the ProRail rail network to makemore efficient use of resources. Along with these efforts,
the networks will achieve energy neutrality by 2030.85
For example, RWS will circularise its operations by no later
than 2030, while ProRail pursues 100% circularity in its
S&CE designs by 2030. The subsequent life cycles ofstructures are also taken into account in this respect (multilife cycle analysis). These aims are reflected in many RWS
procedures, among which is circular procurement.

85

62 | A Circular Economy in the Netherlands by 2050

Parliamentary Documents II, 30 196 no. 459

Reduction of material consumption by natural solutions

Large-scale paving is undesirable from a climate adaptation
perspective. By utilising naturally available benefits, such as
the water storage capacity of the subsoil or the cooling effectof greenery, material requirements may be reduced. Natural
capital constitutes a tool that helps bring the circular
economy closer. Under the Urban Green and Blue Values City
Deal, cities are experimenting widely with the use of natural
capital (for example, water storage).

facilitate the proper discarding of products among citizens
and companies, thus fostering high-grade recycling andclosing loops. To this end, it is imperative that products aredesigned in a manner that extends product life, enhances
their reusability, repairability, and recyclability, and uses
renewable raw materials. Consumers must exercise morecare in the separate disposal of products and materials in
the appropriate collection systems.

5.5.2 Vision for 2050

5.5 Consumer goods
5.5.1 Why this priority?
Consumers (citizens and companies) play an important partin fostering the transition to a circular economy. Consumers
make conscious yet also quite frequently unconscious
choices when purchasing consumer products, and discard
such products after a certain period of time. Consumer
goods (things or stuff ) rank first in the environmental
impact top ten of average annual consumption per capita86).
Many discarded products are already separated and recycled,
but half of the mass still goes to waste because it isincinerated or ends up in a landfill. Residual waste fromcitizens and companies accounts for 80% of the total
volume of incinerated or landfill waste.87
Consumer products and their packaging are not just used athome, but also outside the house, for example, at work, inschool, or on the road. Citizens and companies are notalways aware of the importance of the role they play inpreserving the high quality use of products and materials.
Everyday choices, whether conscious or unconscious, affectthe demand for products and materials, and their discarding
after use. Changing consumer behaviour is vitally important,with special attention focused on waste prevention. Suchbehaviour forms part of an overall approach to productvalue chains, which run from design and production up to
and including discarding and recycling.

By 2050, we will only use sustainably produced, renewable,
and generally available raw materials. We will make efficientuse of raw materials and no longer produce waste or litter.
The consumer goods that are eventually discarded will berecycled in a high-quality manner and used for new
products. Smart return and collection systems will havebeen set up to this end. Citizens and companies will exercise
due care in dealing with products, including how they
discard them after use, thus eliminating the need forincineration or the landfilling of residual waste; while
discarded products and materials will retain their value inthe economy.
Companies will facilitate their employees and customers in
waste prevention and waste separation, and pursue
sustainable raw materials policies because these pay off.
Citizens and companies will purchase sustainable products
and services that can be properly reused once discarded. The
retail trade sector will support consumers in their choices
by offering only sustainable products. The waste andrecycling sector will encourage the customers, and is crucial
for the producers in ensuring their high-quality use ofrecyclates rather than primary raw materials; recyclable raw
materials will no longer be incinerated. Consumers will
regard the careful use of products and materials asa standard matter, in order to make a concrete contribution
to the preservation of natural capital and the countering ofclimate change.

5.5.3 Operational goals
We are no longer in a position to waste raw materials. Toomany raw materials are wasted: in 2012, nearly 10 million
tons of Dutch waste were incinerated or landfilled.
Municipalities, producers, and waste and recycling
companies can play a greater role in the transition toa circular economy, among other ways by focusing on andinvesting in innovative collection, sorting, and processing
systems that yield high-quality raw materials for producers.
Such systems may be structured more effectively in order to

86

Top ten of environmental impact of average consumers, CE Delft,
April 201687

Waste processing in the Netherlands, 2014 data, Waste Registration
Working Group, November 2015

1. By 2020, the annual volume of household residual
waste will be a maximum of 100 kg per capita; by 2025
the maximum will be 30 kg per capita per year;
2. By 2022, the volume of residual waste from companies,
organisations, and governments that is comparable tohousehold residual waste will be halved (compared to2012 figures);3. By 2025, citizens and companies will use consumer
goods in such a manner as to allow them to remain in
the cycle; not littering will have become the standard.

Government-wide Programme for a Circular Economy | 63

interview

Only 2.6 kg of “ordinary”
waste a week
Kees and Daniëlle have participated in the 100-100-100
project: 100 households, 100 days,100% waste-free.

‘… we used to throw out
ridiculous amounts of waste.’‘Of course, it is just a drop in the ocean,’ says Kees, ‘but weused to throw out ridiculous amounts of waste. Now weseparate our waste, which leaves us with only 2.6 kg of“ordinary” waste and an average of 2 shopping bags ofplastic a week. We also have a separate bin for organic
waste. I was rather dreading that. It is bound to smell,
I thought. But we collect our organic waste in a small bin
and empty that into the large organic waste bin outside.
I’m very happy we started this. Our 60 litre waste bin in
the kitchen is now for sale.’

Kees en Daniëlle
100-100-100-project64 | A Circular Economy in the Netherlands by 2050Daniëlle agrees: ‘We are definitely going to continue
separating waste after the 100-100-100 project. We are notbuying less than usual, but we do take a bag of our own
along to the shops, for example. It has become a good
habit that requires little effort. On the day before we went
on holiday I threw our organic waste into the ordinary bin,and felt rather guilty.’
More bins for plastic waste: that is something Daniëlle
would like to see. ‘But the government should also refute
the urban legend that once separated, all waste is thrown
together!’ Kees wonders about the different regulations inplace from one municipality to the next. ‘In our town, milk
cartons and tins go into the regular waste bin, but in other
cities they can go into the plastics bin. That does not makesense. Why can’t the regulations be the same throughout
the country?’5.5.4 Ongoing efforts
Applying behavioural knowledge for consumer action
perspective

In keeping with the recommendations by the Dutch
Scientific Council for Government Policy (WRR)88 and theCouncil for the Environment and Infrastructure (Rli)89, we
have embarked on utilising current behavioural insights in
actual practice. Our point of departure is the Approach topromoting sustainable consumer behaviour90 developed within the
From Waste to Resources (VANG) programme. The
Behavioural Insight Teams91 (BITs) set up by the Ministries ofInfrastructure & the Environment and Economic Affairs map
out behavioural insights (both internally and externally),
and recommend effective practical policy applications.
In the Duurzaam Doen [Sustainable Action]92 project, theMinistry of Infrastructure and the Environment has joined
forces with a network of companies, NGOs, and (young)entrepreneurs to enhance the appeal, relevance, andaccessibility of sustainable choices for consumers. The PLUK
campaign93 marks the first step in sharing inspiring
products and services, experience, and concrete tips related
to sustainable living and consumption.

Best practices:
In the 100-100-100 project95, households demonstrate,
in concert with their municipality, that a reduction ofdomestic residual waste to no more than 25 kg per
capita per year is feasible.
The Schoon belonen [Rewarding clean] project isanother fine example of an initiative revealing ways todevelop effective return systems for certain packaging.

Domestic waste

Households still produce an annual average of some 250 kgof residual waste per capita. Effective separation andprevention measures can substantially reduce the volume ofdomestic residual waste. In concert with the municipalities,
the Publiek kader Huishoudelijk Afval [Public framework fordomestic waste]95 and the Uitvoeringsprogramma Huishoudelijk
Afval96 [Domestic waste implementation programme] havebeen drawn up to halve the volume of household residual
waste. A further reduction in the volume of discarded paper
will be achieved by a wider use and easier accessibility of
No-No (no junk mail, no free newspapers) stickers,
simplifying unsubscription to quasi addressed printed
matter, and a shift to and acceptance of digital advertising
matter. Implementing partners in these initiatives include
municipalities and organisations active in the advertising
sector.97
Value chain approach

Under the Domestic Waste implementation programme,
stakeholders are working on the material and financial
closure of product value chain loops, and the optimisationof material and product flows. This value chain approachtargets consumer goods from domestic and similar waste,such as nappies (diapers), textiles, mattresses, and plastics.
Plastic recyclers are involved in the latter topic, in
accordance with the Van Gerven motion.98 On the basis ofa collective vision, the stakeholders are working on, e.g.,prevention, improve­ment of waste separation, more andbetter recycling, and processing technologies. With respect
to each value chain, options are explored for introducing
individual refunds for the relevant materials.
Implementation of ICSR covenant on sustainable clothing andtextilesSeveral product value chains are tackled under
an international CSR covenant. Textiles constitutes the firstof these product value chains. The conclusion of theInternational CSR Covenant on Clothing and Textiles99 provides
a solid foundation. Under the ICSR covenant, concluded in2016, stakeholders are developing a circular economy
roadmap for the fashion and textile sectors. This roadmap
addresses raw materials efficiency, production planning,use of recycled materials, reuse, and wastage. It is up to thecompanies involved to establish sustainability and circular
textile strategies, and select conducive initiatives. The Social

95

Public framework for domestic waste, Ministry of Infrastructure andthe Environment, November 2014

96

Domestic Waste implementation programme, Ministry of
Infrastructure and the Environment, November 2014

97

This carries into effect the Ouwehand motion (Parliamentary
Documents II, 30 872, no. 194), requesting the government to enter
into consultations with municipalities in order to better facilitate theuse of No/No stickers, and the Ouwehand motion (Parliamentary
Documents II, 30 872, no. 195), requesting the government to
explore ways to combat the surreptitious use of quasi addressing injunk mail.

88

WRR, De Menselijke Beslisser [The human decision-maker], 200989

Rli, Doen en Laten [Taking action or not], 201490

National government, Aanpak Verduurzamen Consumentengedrag[Approach to promoting sustainable consumer behaviour], 201591

BIT is a network of knowledge institutes, renowned behaviouralscientists, and practical experts in the behavioural field.

92

https://www.duurzaamdoen.nl

93

https://www.pluk.nl

98

Parliamentary Documents II, 30 872, nr. 153

94

100 households in each municipality attempting to live 100%
waste-free for 100 days.

99

International CSR Covenant on Sustainable Clothing and Textiles,
March 2016

Government-wide Programme for a Circular Economy | 65

and Economic Council of the Netherlands (SER) has
supervised the establishment of the covenant and will
designate a secretariat to monitor its implementation. This
also extends to the pending (ICSR) covenants to beconcluded with the other high-risk sectors.100
Non-domestic waste (office, shop, and services sector)

The VANG Buitenshuis [From Waste to Resources – Nondomestic] programme is aimed at halving the volume ofresidual waste in the Office, Shop, and Services (OSS) sector.
By 2022, the volume of residual waste from companies,
organisations, and governments comparable to domestic
waste must be halved from 2 Mton to 1 Mton. To achieve
this goal, Green Deals have been concluded with NS/ProRailand with festival organisers, and pilot projects have beenrolled out aimed at waste prevention and separation inschools and along motorways. The Rijkswaterstaat Directive
for transparent waste separation101 published in 2015(seeking uniformity in colour, pictogram, and designation)
provides tools for efficient communication regarding waste
separation and encouraging positive behaviour. A study iscurrently underway into residual waste, opportunities, andobstacles in the OSS sector. The approach will be intensified
on the basis of this study. The national government falls
under the OSS sector and is assuming responsibility forhalving its volume of residual waste.

out in this agreement into effect. The Framework
Agreement parties are contributing to the transition toa circular economy and the reduction of residual waste byinvesting towards a sustainable packaging value chain,
improving the collection and recycling of packaging waste,developing innovative return and processing systems, andinitiating clean-up activities. A good example is the Schoon
Belonen [Rewarding Clean] project.103 Sustainable packaging
is developed through Sector sustainability plans, setting out
goals for achieving more sustainable product-packaging
combinations. In addition, various sectors have committed
to using a certain percentage of recycled materials in theirpackaging.104
More and better recycling

National Litter Policy

We want to prevent recyclable material from ending up in
the incinerator. With a view to, inter alia, achieving the goalof halving the volume of incinerated or landfilled residual
waste, the central government and the branch organi­sations in the waste and recycling sector105 have set down
agreements in the More and Better Recycling Covenant. To
achieve this goal, the parties are jointly working on the
promotion of sustainable innovations in waste manage­
ment and recycling, focused on quality and reducing theenvironmental burden, in particular in the field of waste
separation and collection, on increasing the costeffectiveness of sorting processes, and on high-grade
recycling.

Litter is still a widespread phenomenon. Keeping public
spaces clean entails an annual societal cost of some
250 million euros. The packaging industry contributes
an annual 20 million euros to this sum.

The Cabinet will explore cost-effective ways to upcycle
valuable streams from foreign household and commercial
waste that is currently incinerated in the Netherlands.

Together with the network partners, the Cabinet seeks toclean up and prevent future litter. The implementation of
the Landelijke Aanpak Zwerfvuil (National Litter Policy, LAZ)102
will be continued in 2017, placing even greater emphasis onparticipation by citizens and companies, enforcement of
the regulations, influencing citizen behaviour, and tacklingsources. An integrated approach is being adopted topromote sustainable behaviour to keep the Netherlands
clean.
Framework agreement on Packaging

Under its responsibility as producer, the packaging industry
has committed to the Framework Agreement on Packaging II(2013-2022). In collaboration with the municipalities andthe central government, they will carry the agreements set

100
101

Prevention and removal of litter in waterWith respect to the prevention and removal of litter in theoceans, the Programme of Measures for implementation of
the Marine Strategy Framework Directive (KRM) will be
continued in 2017. Continued support will be provided tothe associated Green Deals, such as those pertaining to
Clean Beaches, Fishery for a Clean Ocean, and the Shipping
Waste Value Chain. Clean-up campaigns such as thoseinitiated by Stichting De Noordzee and Schone Maas fit inwith this integrated approach. As an extension of these
efforts, the Netherlands is taking and will continue to takea proactive stance in the implementation of the OSPAR
Regional Action Plan, involving joint regional measures forcombating marine litter in the North Sea region.

CSR sector risk analysis, KPMG, September 2014

http://www.rwsleefomgeving.nl/onderwerpen/afval/afvalpreventie/
vang-buitenshuis/downloads-vang/richtlijn-herkenbare/
Plan of Action for the National Litter Policy, Ministry of
Infrastructure and the Environment, December 2015102

66 | A Circular Economy in the Netherlands by 2050

103

Schoon Belonen pilot, June 2015

104

Plastic Recycling Fact Check, KIDV, March 2016

105

VA, BRBS Recycling, FHG, NVRD

5.5.5 Planned actions
Wider deployment and expansion of behavioural knowledge

Citizens and companies bear an important responsibility forthe responsible use of products and materials, and theirhigh-grade return to the economy. Individual consumer
behaviour is influenced by personal circumstances,a person’s considerations, and his/her beliefs. The social
environment also plays a part. Effective influencing of thesefactors calls for sharp analyses, careful monitoring, andevaluation of interventions. The Cabinet will deploy the BIT
teams on a wider scale and launch a study to gain more grip
on influencing norms and values (unconscious behaviour).

materials and funding, by 2025. In addition to material andfinancial aspects, the value chain loop closure process will
also pay attention to ecological and social (multiple) values.
In order to be able to effectuate the transition to a circular
economy, the “utilisation” phase needs to be spotlighted
within the five priority sectors and value chains. From thisperspective, this phase needs further elaboration, together
with the relevant value chain partners. An example is theuse of power drills that are made for frequent use, whilein actual practice consumers only use the product for
12 minutes of its entire life cycle. This calls for change.
More effective collection and return systems

It is important for consumers to realise that waste has value
and can be reused, if properly used and discarded. The
message of efficient and effective use of raw materials must
be disseminated and embraced on a much wider scale.
Actual observance of the Waste is a resource standard isessential. Sustainable choices must become more appealing,
more relevant, and easier. The PLUK campaign will be
expanded with presentations at locations at which
consumers make sustainable choices.
Promoting sharing, reuse, and repair among residents

Together with manufacturers and municipalities, theCabinet aims to encourage reuse by updating second-handand give-away shops, and reinforcing the repair andrestoration culture through, for example, repair cafés.
For that reason, a pilot was launched in 2016 involving
coalitions with municipalities, waste collectors, andrecycling and repair companies aimed at encouraging andupscaling the reuse of goods. Together with municipalities,
the Cabinet will make an effort to promote utilisation of
sharing platforms among the population, and encourage
residents to lease, rent, trade, and give away more. A set ofconcrete everyday waste prevention tools is currently being
developed and will be communicated to consumers. In
keeping with the Van Tongeren and Çegerek motion106,
the Cabinet will also examine which products are mostfrequently offered for repair. The House of Representatives
will be informed accordingly in the annual progress reporton this programme

The prevention and proper separation of waste needs tobecome transparent, easy (univocal), and appealing for
citizens and companies. For that reason, the Cabinet isgoing to devise a method, together with producers,
municipalities, and the waste and recycling sector, for the
introduction of a univocal and efficient collection systemfor both domestic and commercial waste (similar waste,consumer goods). This must enable consumers to disposeof their waste separately “anytime and anywhere” (at home,
at work, in school, or on the road), thus ensuring that morewaste is recycled in a more efficient manner.
In order to develop a univocal and efficient system, theCabinet is calling on the major cities to catch up with the
majority of the other municipalities with respect to separate
waste collection. Inspiring experiences with alternative
waste collection systems, such as reverse collection107, tariff
differentiation108, and “100-100-100” are taken into accountin this effort. The ultimate goal of the Cabinet is that thebest results will be the standard (“if it can be done elsewhere,
it can be done here too”). Another system that could prove
effective in this regard is subsequent separation.
This calls for companies to support their employees andcustomers in the field of waste prevention and separation(e.g., setting purchasing requirements, circular procure­
ment, providing waste separation bins, offering nonpackaged products, et cetera).
Improved sorting and processing systems

Optimising consumer goods product value chains

Nappies (diapers), textiles, mattresses, furniture, plastics,
and other waste similar to domestic waste are also producedby parties other than households. A large proportion ofsuch waste is still incinerated. For that reason, the VANG
Domestic Waste value chain approach will be expanded toinclude similar commercial waste. The intention is to haverelevant consumer goods value chains closed, in terms ofIn their capacities as principals and contractors, local
parties may raise the requirements to be met by parties
further down the processing value chain, in order to reduce
residual waste. The Cabinet will encourage municipalities

Reverse collection: collection system in which reusable materials
are collected door-to-door, and residual waste must be taken toa central location.

107

Waste produced by households is registered upon collection; waste
levies are proportional to the volume of waste offered for collection.

108
106

Parliamentary Documents II, 33 043, no. 59

Government-wide Programme for a Circular Economy | 67

and waste collectors to make increasing use of innovative
tenders (waste contracts) to improve the efficiency of sortingand processing systems.

Efforts to reduce the volume of residual waste can bear
fruit: in 2015, several municipal waste companies, suchas Circulus-Berkel BV and Midwaste, adopted an
innovative tender procedure to successfully challengesorting companies to raise the percentage of plastics
sorted (from 50% to more than 90%).
High-grade use of recyclates

The waste and recycling sector can be regarded asa “resource broker”, a broker that ensures that raw materials
are collected and sorted as cleanly as possible, and that
ensures that producers are supplied with sufficient highquality recyclates.109 The Cabinet intends to set down andmake agreements on the proportion and quality of recyclate
for the relevant product value chains, together with thewaste and recycling sector and the producers. Recyclate
must be able to compete with primary material on the(European) market (consistent quantity, quality, and price).
This actually does not only apply to consumer goods, butalso to the other priorities identified in this programme.
Disposable products

The Cabinet will enter into consultations with producers
and retailers to cut back the use of non-sustainable,
disposable products (such as promotional products or
disposable plates). After all, there is a sufficient array ofalternatives made of renewable raw materials. Wherevernecessary, the tools outlined in this Government-wide
programme can be used to this end.
Waste Fund

The Board of the Stichting Afvalfonds [Waste Fund Foundation]
has reported on the activities it has undertaken up till now.
The Stichting Afvalfonds will use the remaining resources tohelp fund projects aimed at the promotion of the separate
collection and recycling of packaging, making the packaging
value chain sustainable, and combating litter. The Cabinet
applauds this, because in its view, these efforts makea substantial contribution to achieving the goals set for theplastics and consumer goods priorities. Supplementaryagreements will be made by municipalities, the packaging
industry, and the Ministry of Infrastructure and theEnvironment. Programmes will be rolled out, including to

Recyclate is the generic term for all sorts of products generated by
a completed recycling process, that can be used without any further
processing in a semi-manufacture or end product production
process.

109

68 | A Circular Economy in the Netherlands by 2050

further increase glass waste collection, and, as stated earlier,to achieve and provide clear information on an effective
and univocal waste collection system, in concert with themunicipalities. Several municipalities have alreadydemonstrated that tremendous results can be achieved.
This boost is expected to accelerate and improve the results
achieved by the other and especially the large munici­
palities. The Stichting Afvalfonds funding thus contributes
to the realisation of the ambitions set out in thisprogramme.

Published by:

The Ministry of Infrastructure andthe Environment and the Ministry of
Economic Affairs, also on behalf ofthe Ministry of Foreign Affairs andthe Ministry of the Interior and Kingdom
Relations.

www.government.nl/circular-economy
September 2016