Report from the Commission to the European Parliament and the Council on the progress of the pilot studies referred to in Article 4(3) and Article 5(1) of Regulation (EC) No 2150/2002 of the European Parliament and of the Council of 25 November 2002 on waste statistics
Date: 2005-05-31
Institutions: European Commission
Subjects: EU statistics, export of waste, report, waste, waste disposal, waste management, waste recycling

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 31.05.2005 
COM(2005) 223 final 

REPORT FROM THE COMMISSION  
TO THE EUROPEAN PARLIAMENT AND THE COUNCIL 

on the progress of the pilot studies referred to in Article 4(3) and Article 5(1) of 
Regulation (EC) No 2150/2002 of the European Parliament and of the Council 
of 25 November 2002 on waste statistics 

EN 

   EN 

 
 
 
  
1. 

INTRODUCTION 

Regulation  (EC)  No  2150/2002  of  the  European  Parliament  and  of  the  Council  of 
25 November  2002  on  waste  statistics1  (Waste  Statistics  Regulation)  came  into  force  on 
29 December 2002. The Regulation establishes a framework for the production of Community 
statistics on the generation, recovery and disposal of waste. 

Regular  statistics  on  the  production  and  management  of  waste  from  businesses  and  private 
households  are  required  by  the  Community  for  monitoring  the  implementation  of  waste 
policy. 

The Regulation was designed after careful consideration of the complexities and difficulties 
of  producing  waste  statistics.  During  the  process  of  developing  this  Regulation  with  the 
Council and the European Parliament, it was agreed that a number of pilot studies would be 
needed  to  clarify  some  fundamental  issues  concerning  new  areas  of  waste  statistics.  These 
areas  are,  in  particular,  statistics  on  waste  generated  in  ‘Agriculture,  hunting,  forestry  and 
fisheries’ (Article 4(3)), and statistics on the ‘Import and export of waste’ (Article 5(1)) for 
which no data is collected under the Waste Shipment Regulation2. 

The Waste Statistics Regulation stipulates in Article 8(3) that “the Commission shall, within 
two years after the entry into force of this Regulation, submit to the European Parliament and 
the Council a report on the progress of the pilot studies referred to in Article 4(3) and Article 
5(1).” 

This report meets this requirement.  

In addition to the mandatory pilot studies, Member States are invited to carry out pilot studies 
on  ‘Packaging  waste’  (Annex  I,  Section  2(2))  and  on  ‘Preparatory  operations’  (Annex  II, 
Section  8(3)).  The  Commission  will,  if  required,  use  the  results  and  conclusions  from  these 
‘voluntary’ pilot studies to adopt further necessary implementation measures. 

2. 

THE PILOT STUDY PROGRAMME 

The  Commission  has  drawn  up  a  programme  of  pilot  studies  to  be  carried  out  in  Member 
States and candidate countries. Financial support is provided to assist the countries in carrying 
out  the  studies.  Despite  the  difficulties  and  delays  in  setting  up  the  programme,  the 
Commission  believes  that  a  good  start  has  been  made  and  positive  long-term  effects  are 
expected for each Member State and for the Commission. 

2.1. 

Framework of the pilot studies 

2.1.1.  Statistics on import and export of waste 

Article 5 of the Waste Statistics Regulation stipulates that the “...Commission shall draw up a 
programme for pilot studies on the import and export of waste to be carried out by Member 

1 

2 

OJ L 332, 9.12.2002, p. 1, Regulation as last amended by Commission Regulation (EC) No 574/2004 
(OJ L 90, 27.3.2004, p. 15). 
Council Regulation (EEC) No 259/93 of 1 February 1993 on the supervision and control of shipments 
of waste within, into and out of the European Community, OJ L 30, 6.2.1993, p. 1. Regulation as last 
amended by Commission Regulation (EC) No 2557/2001 (OJ L 349, 31.12.2001, p. 1). 

EN 

2 

   EN 

 
                                                 
States…”. On the basis of the conclusions of the pilot studies, the Commission is to inform 
the  European  Parliament  and  the  Council  of  the  possibilities  of  compiling  statistics  for  the 
activities and characteristics covered by the pilot studies for import and export of waste. 

One of the main questions to be addressed by the pilot studies on import and export of waste 
is the level of detail to appear in the statistics. This is related to a second question on how the 
reporting obligation of the Waste Shipment Regulation should be incorporated into the Waste 
Statistics Regulation. In other words, could the data on the import and export of (hazardous) 
waste reported under the Waste Shipment Regulation be used as an input for statistics? 

A  third  question  raised  was  how  to  collect  data  on  the  import  and  export  of  non-hazardous 
waste.  Although  this  so-called  “green”  list  waste  is  incorporated  in  the  Waste  Shipment 
Regulation, it does not fall under the reporting obligation.  

In  order  to  structure  the  work  aiming  for  operational  recommendations  for  a  harmonised 
methodology, the terms of references are formulated as follows: 

•  General information concerning (environment) policy needs. 

This  concerns  statistical  data  needs  on  imported  and  exported  waste  at  EU  and 
national level.  

•  Specific information on waste and data collection. 

This concerns the existing data sources, the waste streams not covered by the Waste 
Shipment  Regulation  and  what  should  be  in  the  scope  of  the  Waste  Statistics 
Regulation, the aggregation of the reporting obligations, the mapping of possible data 
sources – especially for “green” list waste, and the inclusion of packaging waste. 

•  Conclusions and recommendations. 

This  concerns  a  proposal  for  a  data  collection  method  which  is  realistic  and 
manageable  and  (possibly)  country  specific,  but  ensuring  certain  quality  standards 
for the final data, being harmonised for use in all countries. 

2.1.2.  Statistics on waste from agriculture, hunting, forestry and fishery 

In  most  countries  no  methodology  existed  for  statistics  on  waste  arising  from  the  economic 
sectors  agriculture,  hunting,  forestry  (NACE  A)  and  fishery  (NACE  B).  Article  4(3)  of  the 
Waste  Statistics  Regulation  provides  for  a  pilot  studies  programme  on  waste  from  these 
economic  activities  with  the  objective  of  developing  a  methodology  for  regular  data 
collection. 

The difficulties in this area result from the fact that it is not clear which of the many residuals 
arising fall under the reporting obligations and which do not. Clear decisions and agreements 
on the identification of these wastes will need to be made during the implementation phase. 

Furthermore, the statistical population within these economic activities is large and consists of 
many small farmers or firms, who often lack proper knowledge of the waste issue and do not 
keep full records. Data collection schemes have to be well developed and organised. 

In  order  to  structure  the  work  aiming  for  operational  recommendations  for  a  harmonised 
methodology, the terms of reference are formulated as follows:  

EN 

3 

   EN 

 
•  General information concerning (environment) policy needs. 

This concerns statistical needs in this area. 

•  Specific information on waste and data collection. 

Description  of  waste  management  practices  in  these  sectors,  suggestions  for  waste 
categories  to  be  included  under  these  economic  activities  as  well  as  proposals  for 
the  relevant  waste  nomenclature. 
classifying 
Furthermore,  existing  data  sources  are  to  be  mapped  and  estimation  and  modelling 
methodologies  for  the  sectors  are  to  be  developed.  Finally,  the  consequences  of 
minimum thresholds for reporting (Article 3(2)) need to be considered. 

these  categories  according 

to 

•  Conclusions and recommendations. 

As  for  data  on  the  import  and  export  of  waste,  this  concerns  a  proposal  for  a  data 
collection method which is realistic and manageable and (possibly) country specific, 
but ensuring certain quality standards for the final data, being harmonised for use in 
all countries. 

2.2. 

Results and experiences to date 

A  restricted  call  for  proposals  was  sent  out  by  official  letter  in  May  2003,  addressed  to  the 
European  Statistical  System  (ESS),  the  National  Statistical  Institutes  of  the  Accession 
Countries  and  the  European  Economic  Area  (EEA).  Due  to  the  particular  situation  (the  late 
adoption  of  the  financing  decision  for  Eurostat  in  2003),  first  grant  agreements  for  pilot 
studies could only be concluded in December 2003. A second restricted call for proposals was 
sent  out  in  October  2003;  grant  agreements  were  concluded  in  March  2004.  At  the  time  of 
preparation of this report in November 2004 most of  the pilot studies are still being carried 
out. 

2.2.1.  Statistics on import and export of waste 

Two  studies  related  to  import  and  export  of  waste  have  been  finalised;  in  April  2005  all 
current studies will be terminated. Table 1 below provides an overview of the pilot studies on 
import and export of waste. In total, 10 countries participated in the programme, of which 3 
are  from  the  “new”  Member  States  and  accession  countries.  Most  of  the  institutions 
participating  in  the  pilot  studies  are  National  Statistical  Institutes  (NSIs),  but  environmental 
institutions  are  also  participating  (Ministries  of  Environment  or  National  Environment 
Agencies). 

EN 

4 

   EN 

 
Table 1: Pilot studies on statistics on import and export of waste 

Country 

France 

Portugal 

Finland 

Germany 

Italy 

Sweden 

1 

2 

3 

4 

5 

6 

7 

8 

9 

Slovak Republic 

25,000 

Romania 

Luxembourg 

10  Malta 

Community 
contribution 
(€) 

Beneficiaries’ 
co-financing 
(%) 

Duration 
(months) 

29,400 

27,714 

40,000 

39,889 

40,000 

39,698 

24,800 

35,550 

24,909 

0% 

20% 

0% 

18% 

19% 

0% 

0% 

0% 

0% 

0% 

15 

12 

12 

4 

8 

5 

11 

12 

12 

12 

Start 

End 

Dec-03 

Mar-05 

Nov-03 

Dec-03 

Nov-04 

Dec-04 

Dec-03 

Apr-04 

Mar-04 

Mar-04 

Jan-05 

Jul-04 

Mar-04 

Feb-05 

Mar-04 

Mar-05 

Apr-04 

Apr-05 

Mar-04 

Mar-05 

The results presented here are preliminary as most studies are still being carried out. The two 
studies  already  finalised  consider  foreign  trade  statistics  as  the  most  suitable  data  source  to 
produce statistics on export and import of waste, in particular for the following waste types: 
metallic  waste,  plastic  waste,  paper  and  cardboard  waste,  glass  waste,  textile  waste  and 
combustion waste. 

The  general  advantage  of  using  available  statistics  based  on  common  parameters  and  a 
harmonised  nomenclature  used  by  all  Member  States  is,  however,  compromised  by  the  fact 
that  different  thresholds,  expressed  in  monetary  value,  are  applied  by  Member  States  to 
reduce the administrative burden on businesses. This means that data is not fully comparable 
and  may  lead  to  an  underestimation  of  the  amounts  of  waste  traded.  Unfortunately,  the 
respective  nomenclatures  for  foreign  trade  statistics  (Combined  Nomenclature  -  CN)  and 
waste  (European  Waste  Classification  for  Statistics  –  EWC-Stat)  are  not  comparable  for  all 
waste  streams.  For  example,  some  CN  codes  include  waste  and  products  in  the  same  code, 
whilst  some  codes  contain  wastes  that  are  partially  or  fully  covered  by  the  reporting 
requirement of the Waste Shipments Regulation. Furthermore, foreign trade statistics do not 
provide  direct  information  on  the  waste  generating  industry  nor  on  the  treatment  that  the 
waste is undergoing in the country importing it. 

At the moment no other sources identified can complement the data collected under the Waste 
Shipment Regulation for waste streams other than those mentioned. 

2.2.2.  Statistics on waste from agriculture, hunting, forestry and fishery 

As statistics on waste from these economic activities are not compiled on a regular basis in 
most Member States, special emphasis has been directed towards pilot studies on this subject. 
Table 2 below provides an overview of these pilot studies. 

In late 2003 and beginning of 2004, 15 projects started to investigate the waste management 
practices  and  the  respective  data  collection  possibilities.  The  majority  of  the  participating 

EN 

5 

   EN 

 
 
countries  belong  to  the  “old”  Member  States,  5  studies  are  being  carried  out  by  “new” 
Member  States  and  one  study  is  being  conducted  by  the  National  Statistical  Institute  of  a 
country belonging to the European Economic Area. By the beginning of November 2004, 4 
studies were finalised and most of the remaining studies will finish in the beginning of 2005. 
Institutions  participating  in  the  pilot  studies  are  National  Statistical  Institutes  and 
environmental institutions (Ministry of Environment or Environment Agency). 

Table 2: Pilot Studies on statistics on waste 
from agriculture, hunting, forestry and fisheries 

Community 
contribution 
(€) 

Beneficiaries’ 
co-financing 
(%) 

Duration 
(months) 

Country 

Belgium 

Sweden 

France 

Finland 

Italy 

33,667 

44,560 

48,000 

20,000 

30,481 

The Netherlands 

39,484 

Austria 

Germany 

Norway 

Estonia 

Slovenia 

47,293 

40,000 

34,115 

28,000 

29,900 

Slovak Republic 

25,000 

Lithuania 

Latvia 

Italy 

25,694 

23,058 

20,000 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

0% 

10% 

65% 

0% 

0% 

0% 

18% 

0% 

15% 

0% 

0% 

0% 

0% 

0% 

0% 

20 

4 

15 

16 

8 

9 

12 

8 

9 

12 

8 

11 

12 

12 

8 

Start 

End 

Oct-03 

Jun-05 

Nov-03 

May-04 

Dec-03 

Mar-05 

Dec-03 

Apr-05 

Dec-03 

Aug-04 

Dec-03 

Dec-03 

Sep-04 

Dec-04 

Dec-03 

Aug-04 

Apr-04 

Dec-04 

Mar-04 

Feb-05 

Mar-04 

Nov-04 

Mar-04 

Feb-05 

Mar-04 

Mar-05 

Mar-04 

May-05 

Mar-04 

Nov-04 

Statistics on waste from agriculture have proved to be very complex and are therefore given 
most attention. Terminology and definitions are crucial when comparing data over time and 
between countries. Furthermore, according to Section 1(2) of Annex II to the Waste Statistics 
Regulation,  waste  recycled  on  the  site  of  generation  is  not  covered  by  statistics  on  waste 
treatment. In addition, the agricultural sector is also a recipient of waste from other sectors. 
Municipal  sewage  sludge,  composts  and  residues  from  anaerobic  fermentation  of 
biodegradable wastes are used as fertiliser and soil conditioner; waste from the food industry 
can be used for land treatment. 

In  the  agriculture  sector  it  is  therefore  necessary  to  clarify  in  detail  which  materials  or 
substances  fall  under  the  waste  statistics  reporting  obligations,  which  are  the  cases  where 

EN 

6 

   EN 

 
 
 
 
 
 
 
 
 
wastes are recycled on the site of production and how to report on wastes generated by other 
economic sectors but treated within the agricultural sector. 

As  regards  data  collection,  due  to  the  large  variety  of  waste  types  generated  by  these 
economic activities a combination of different methods will be most appropriate. The use of 
different  registers  or  administrative  systems  for  waste  registrations  seems  most  favourable. 
Waste  factors  connected  to  available  activity  data  are  also  feasible,  but  require  detailed 
studies  for  establishing  reliable  waste  factors.  Statistics  available  through  regular  farm 
surveys will be taken into account as a data source for the development of estimation models. 

There  are  still  a  number  of  open  issues  for  which  clarification  is  expected  through  the 
remaining pilot studies. 

3. 

FINANCIAL ASPECTS 

Article  4(3)  and  Article  5(3)  of  the  Waste  Statistics  Regulation  stipulates  that  “…The 
Commission shall finance up to 100% of the costs for conducting the pilot studies...”. For the 
current pilot study programme a total budget of €816,212 is allocated, of which €326,960 is 
for  pilot  studies  on  export  and  import  of  waste  and  €489,252 is  for  pilot  studies  on  waste 
statistics related to agriculture, hunting, forestry and fisheries. 

Although  the  Regulation  provides  for  financial  support  of  up  to  100%  of  the  costs  of 
conducting the studies, 7 out of 25 studies are co-financed by the beneficiaries. For the next 
call for proposals, in line with the Financial Regulation for the Community3, co-financing of 
at least 10% by the beneficiary will be required. 

4. 

CONCLUSIONS 

The first results from the pilot studies on statistics on import and export of waste demonstrate 
that  although  foreign  trade  statistics  have  been  identified  as  the  best  source  they  do  not 
provide  a  full  set  of  data  that  can  be  used  to  complement  the  data  covered  by  the  Waste 
Shipment Regulation. For a number of waste categories for which statistics are to be compiled 
a  concrete  solution  has  not  been  identified  yet  and  therefore  further  studies  would  be 
necessary. 

With  regard  to  statistics  on  waste  from  agriculture,  hunting,  forestry  and  fisheries  a  large 
variety  of  waste  streams  have  to  be  considered  and  the  most  crucial  issue  is  to  what  extent 
bio-organic waste will be covered by waste statistics. Another essential aspect is the treatment 
of  waste  within  the  agricultural  sector  and  the extent  to  which  this  is  included  in  the  waste 
statistics. 

For both fields of pilot studies another call for proposals will be launched in 2005. The terms 
of reference will be adapted taking into account the experience acquired so far. 

3 

Council  Regulation  (EC,  Euratom)  No  1605/2002  of  25  June  2002  on  the  Financial  Regulation 
applicable to the general budget of the European Communities (JO L 248, 16.09.2002). 

EN 

7 

   EN 

 
                                                 
By  the  end  of  2005  the  Commission  will  inform  the  European  Parliament  and  the  Council 
about the possibilities of compiling statistics for the activities and characteristics covered by 
the  pilot  studies  for  import  and  export  of  waste  as  required  by  Article  5(4)  of  the  Waste 
Statistics  Regulation.  At  the  same  time,  an  update  on  activities  and  results  related  to  waste 
from  agriculture,  hunting,  forestry  and  fishery,  on  packaging  waste  and  on  preparatory 
treatment operations will be given. 

EN 

8 

   EN