COMMISSION STAFF WORKING DOCUMENT Implementation Plan Accompanying the document Proposal for a Directive of the European Parliament and of the Council amending Directive 2008/98/EC on waste Proposal for a Directive of the European Parliament and of the Council amending Directive 94/62/EC on packaging and packaging waste Proposal for a Directive of the European Parliament and of the Council amending Directive 1999/31/EC on the landfill of waste Proposal for a Directive of the European Parliament and of the Council amending Directives 2000/53/EC on end-of-life vehicles, 2006/66/EC on batteries and accumulators and waste batteries and accumulators, and 2012/19/EC on waste electrical and electronic equipment
Date: 2015-12-02
Institutions: Directorate-General for Environment, European Commission
Subjects: electricity storage device, environmental impact, packaging product, prevention of pollution, quality of the environment, storage of waste, vehicle, waste, waste disposal, waste recycling

EUROPEAN 
COMMISSION 

Brussels, 2.12.2015  
SWD(2015) 260 final 

COMMISSION STAFF WORKING DOCUMENT 

Implementation Plan  

Accompanying the document 

Proposal for a Directive of the European Parliament and of the Council amending 
Directive 2008/98/EC on waste 

Proposal for a Directive of the European Parliament and of the Council amending 
Directive 94/62/EC on packaging and packaging waste 

Proposal for a Directive of the European Parliament and of the Council amending 
Directive 1999/31/EC on the landfill of waste 

Proposal for a Directive of the European Parliament and of the Council amending 
Directives 2000/53/EC on end-of-life vehicles, 2006/66/EC on batteries and accumulators 
and waste batteries and accumulators, and 2012/19/EC on waste electrical and electronic
equipment 

{COM(2015) 593 final} 
{COM(2015) 594 final} 
{COM(2015) 595 final} 
{COM(2015) 596 final} 

EN 

   EN 

 
 
 
 
  
 
 
 
 
 
 
 
 
Implementation Plan1 

1. Title of the document for the proposed act:  

Implementation Plan for the Proposals for Directives of the European Parliament and of the 
Council amending: 

-  Directive 2008/98/EC on waste; 

-  Directive 94/62/EC on packaging and packaging waste; 

-  Directive 1999/31/EC on the landfill of waste, and; 

-  Directives 2000/53/EC on end-of-life vehicles, 2006/66/EC on batteries and accumulators 
and waste batteries and accumulators, and 2012/19/EC on waste electrical and electronic 
equipment (WEEE). 

2. Contact point:   

Julius Langendorff, Deputy Head of Unit   

Back-up: Silvija Aile  

DG Environment Directorate A Green Economy 

Unit A2 Waste Management & Recycling  

Tel: +32 2 29 98 829 

Julius.LANGENDORFF@ec.europa.eu 

Silvija.AILE@ec.europa.eu   

3. Introduction 

The  present  proposals  are  based  on  the  legal  obligation  to  review  the  waste  management 
targets  of  three  waste-related  Directives:  Directive  2008/98/EC  on  waste,  Directive 
1999/31/EC  on  the  landfill  of  waste,  and  Directive  94/62/EC  on  packaging  and  packaging 
waste. The proposals aim at translating into the EU legislation the objectives set out in the 
Resource  Efficiency  Roadmap2  and  the  7th  Environmental  Action  Plan.3  They  also  aim  at 
improving the implementation of the waste hierarchy in all Member States, in order to move 
the  EU  towards  a  circular  economy  through  more  waste  reduction,  increased  reuse  and 
recycling, limiting incineration of recyclable waste as well as a gradual reduction of landfilling.  

1 This  Implementation  Plan  is  provided  for  information  purposes  only.  It  does  not  legally  bind  the 
Commission  on  whether  the  identified  actions  will  be  pursued  or  on  the  form  in  which  they  will  be 
pursued. 

2 COM (2011) 571 

3 Decision 1386/2013/EU of 20 November 2013, OJ L 354, 28.12.3012, p. 171 

2 

 
 
                                                            
 
The proposals are based on ex-post evaluations – including a ‘fitness check’ study covering,  
inter  alia  the  Packaging  and  Packaging  Waste  Directive  –  as  well  as  on  an  ex-ante 
evaluation  using  a  European  reference  model  on  waste  generation  and  management.  The 
results  of  these  evaluations  have  been  used  in  the  impact  assessment  accompanying  the 
proposals.  

4. Deliverables and implementation challenges 

4.1. Deliverables 

The  proposals  offer  a  stable  framework  for  waste  management  in  the  EU  based  on  a 
mid/long term vision (2030). They contain new targets and additional means to ensure their 
proper implementation. In summary, the proposals aim to:  

The proposals offer a stable framework for waste management in the EU based on a long-
term  vision  (2030).  It  contains  new  targets  and  additional  means  to  ensure  their  proper 
implementation. In summary, the proposals aim to:  

• 

• 

Increase  recycling/preparation  for  re-use  of  municipal  waste  by  setting  binding  EU-wide 
targets for 2025 (60%) and 2030 (65%); 

Increase recycling/preparation for re-use of packaging waste by setting binding EU-wide 
targets, including material specific ones, for 2025 and  2030; 

•  Reduce  landfilling  of  municipal  waste  through  the  introduction  of  a  binding  target  for  

2030 of maximum 10%; 

•  Take better into account the situation of each Member State by allowing time extensions 
of  maximum  5  years  for  those  Member  States  with  the  biggest  implementation 
challenges;  

•  Harmonise and streamline the calculation of the targets and improve the reliability of key 

statistics;   

•  Promote preparation for re-use by different measures, including the possibility to take a 

into account wider spectrum of activities in the calculation of the targets;  

•  Promote the use of  economic instruments at national level to provide adequate financial 

incentives to ensure better implementation of the waste hierarchy;  

•  Measures  aimed  at  waste  prevention  and  boosting  actions  at  national  level  to  reduce 

food waste generation;  

• 

Introduce  an  early  warning  system  to  anticipate  and  avoid  possible  compliance 
difficulties; 

•  Ensure full traceability of hazardous waste; 
3 

 
 
 
 
• 

Increase the cost-effectiveness of Extended Producer Responsibility schemes by defining 
common minimum requirements; 

•  Simplify drastically the reporting obligations and alleviating obligations facing SMEs; 

• 

Improve  the  overall  coherence  by  aligning  definitions  and  removing  obsolete  legal 
requirements. 

These proposals are expected to provide a clear and robust perspective to guide long-term 
investment strategies focused on prevention, reuse and recycling as well as the future use of 
EU regional funds which should focus on the first steps of the waste hierarchy in line with the 
proposed targets. 

4.2. Challenges 

The main challenges can be summarized as follows: 

1) Reaching the targets within the deadlines (especially for the less advanced Member 
States), which includes: 

− 
− 

the adaptation of waste management plans at national, regional or local levels; 
the  optimal  use  of  existing  and,  where  needed,  development  of  new  infrastructures 
for waste separate collection and recycling; 

−  measures to ensure civil society participation in source separation of waste;  
− 

the  development  of  administrative  capacities  for  enforcement  and  coordination 
between competent authorities at all levels; 
the progressive reduction in the use of landfilling capacities without creating possible 
over  capacities  for  residual  waste,  such  as  incineration  or  low  grade  mechanical 
biological treatment; and 
the  adoption  and  implementation  of  economic  instruments  aiming  at  increasing 
prevention, reuse and recycling.  

− 

− 

2)  Monitoring  waste  management  operations  and  delivering  timely  reliable  statistics, 
which includes: 

− 
− 

the improvement of data collection methods; and  
the  development  of  more  advanced  and  reliable  systems  for  data  verifications  and 
reporting schemes. 

5. Support Actions: 

5.1. Challenge 1 "Reaching the target within the deadline" 

The proposed targets were defined on the basis of the levels already achieved today in the 
most  advanced  EU  countries  or  regions.  Deadlines  were  then  calculated  by  taking  into 
account  what  would  be  a  realistic  time-frame  for  each  of  the  MS  in  light  of  past 
performances. This approach also takes into account the fact new techniques emerged at all 
levels  of  the  recycling  chain  (separate  collection,  sorting,  recycling)  should  allow  less 
advanced  MS  to  make  rapid  progress  in  the  coming  years.  In  addition,  the  proposed  long-

4 

 
 
 
 
 
 
 
 
term  approach  (with  final  deadline  in  2030)  allows  for  the  necessary  flexibility  in 
implementation. Finally, 7 Member States starting from a less favourable situation according 
to officially reported statistics, will be given the possibility to obtain 5 additional years to meet 
the targets on municipal waste (both on recycling and landfilling).   

The proposed targets were also fixed in a ‘synergetic’ and consistent way so that landfilling is 
progressively  reduced  while  recycling  of  municipal  and  packaging  waste  is  increased  at  a 
similar pace. They are also consistent with existing requirements (e.g. separate collection by 
2015, continuation of existing recycling and landfill diversion targets).   

Possible support actions by the Commission: 

In  the  legislative  proposal,  specific  measures  are  proposed  in  order  to  promote  best 
practices,  notably  the  ‘early  warning’  procedure  and  the  proposed  requirements  on  EPR 
schemes. A time extension mechanism is also proposed for those Member States that start 
from a more challenging position. Member States making use of such extension are required 
to establish a detailed implementation plan to ensure that progress in made. If necessary, on 
the  basis  these  plans,  the  Commission  will  be  able  to  provide  these  Member  States  with 
additional recommendations and technical assistance. 

In addition, in 2013, the Commission already launched a  compliance-promotion exercise 
which aimed at assessing and monitoring the implementation of EU waste legislation as well 
as  providing  technical  guidance  and  recommendations  to  support  Member  States.  This 
exercise  included  interactive  exchange  with  national  authorities,  notably  through  the 
assessment  of  national  and/or  regional  waste  management  plans,  the  organisation  of 
seminars and the elaboration of implementation roadmaps adapted to the specific challenges 
of  individual  Member  States.  So  far  17  Member  States  (starting  with  the  less  performing) 
were covered by the exercise and it is the Commission's intention to monitor progress and, if 
needed, carry out similar exercises again in the future. 

Experience gained from the compliance-promotion exercise (2013-2015)  

Key  recommendations  discussed  with  Member  States  during  the  2013-2015  compliance 
promotion exercise include: 

 - 
Introduce  and  gradually  increase  charges  on  landfill/MBT/incineration.  Revenues 
from these charges should be used to support separate collection, awareness raising and the 
creation of modern infrastructure, focusing on prevention, re-use and recycling. 

- 

Establish/improve and control separate collection systems. 

- 
Expand  systems  for  door-to-door  separate  collection  schemes  as  soon  as  possible 
and  undertake  pilot  projects  on  separate  collection  to  develop  solutions  for  local 
circumstances. 

Initiate/intensify  awareness-raising  and  information  designed  for  different  target 

- 
groups. 

5 

 
 
Reform  administrative  structures  and  procedures  to  simplify  administration  of  waste 
- 
management, e.g. bundle capacities via inter-municipal associations and harmonise systems 
in place by providing guidelines on administrative and practical approaches.  

Support  local  authorities  in  setting  up  separate  collection  schemes  (by  incentives 

- 
and/or penalties) and other central tasks (e.g. tendering procedures). 

Extend  and  improve  the  monitoring  and  transparency  of  existing  EPR  schemes  via 

- 
better inspection and enforcement activities, accompanied by guidance. 

Update  national  and  regional  WMPs  including  measures  on  how  to  achieve  legally 

- 
binding targets and objectives. 

- 

- 

Enforce national strategies on bio-waste management. 

Revise statistics by aligning reporting to EUROSTAT guidelines. 

-        Use EU funding to finance infrastructure and initiatives related to the first steps of the 
waste hierarchy. 

In  addition,  the  Commission  has  launched  specific  initiatives  for  the  promotion  of  good 
practices  concerning  waste  prevention,  efficient  separate  collection  as  well  as  the 
management of C&D waste and hazardous waste. 

A reference modelling tool for the management of municipal waste has been developed by 
the Commission in association with the European Environment Agency with the objective of 
regularly assessing the distance to target in all MS, analysing ex-ante expected progress in 
terms of waste management and identifying Member States at risk of not meeting the target. 
This model will be used in the context of the ‘early warning’ procedure. It was also already 
used  by  volunteer  MS  to  support  the  planning  of  waste  management  strategies  at  national 
level. 

The European Environment Agency is also in charge of the review of the Waste Prevention 
Programmes (WPP) in accordance to Article 30, §2 (includes sharing of good practices). 

The Commission has also defined for the use of regional funds (ERDF/CF) a set of ex-ante 
conditionalities  for  the  next  programming  period  2014-2020  (including  for  waste).  These 
conditions already include the uptake of key best practices. The Commission works in close 
collaboration  with  MS  to  ensure  the  optimal  use  of  EU  funds  with  a  priority  given  to 
investments  and  technical  assistance  related  to  the  first  steps  of  the  waste  hierarchy 
(prevention, reuse and recycling).  In addition, when relevant, the Commission has proposed 
‘country specific recommendations’ in the context of the Annual Semester recommending an 
appropriate use of economic instruments in the field of waste management. 

The  new  LIFE  regulation  includes  the  possibility  of  funding  projects  in  support  of 
implementation of waste management policies.  

Those  measures  should  ensure  that  the  less  advanced  MS  are  taking  advantage  of  the 
experience and good practices from best-performing MS. It should help them to design the 
appropriate package of measures and leapfrog the implementation stages in order to capture  

6 

 
 
rapidly the potential benefits (including direct cost savings, reduced greenhouse gas and air 
pollutants  emissions,  job  creation,  easier  access  to  raw  materials)  linked  with  the 
achievement of the upgraded targets. 

Last but not least, the Commission has adopted together with the revised waste targets and 
Action Plan to promote the Circular Economy. The Plan and the proposed waste targets are 
mutually  supportive:  several  actions  proposed  in  the  Action  Plan  will  help  meeting  the 
proposed  waste  targets.    For  instance  various  actions  are  proposed  in  the  Plan  to  improve 
the recyclability, reparability and reusability of products placed on the EU market. A specific 
action is foreseen on plastics to improve their recyclability or biodegradability. Other actions 
are  proposed  to  boost  green  public  procurement.  On  the  other  side,  increasing  re-use  and 
recycling of waste will concretely and directly contribute to the creation of a circular economy.     

Possible actions by the Member States: 

The following actions can be taken at national level: 

-  ensure that sufficient resources are made available at national, regional and local levels 
for the planning, enforcement and operational aspects of waste management policies;  

- provide training and technical assistance in order to optimize the use of existing or build 
the necessary new capacities, especially at local level for municipal waste management; 

-  where  necessary,  develop  a  dialogue  with  the  Commission  about  waste  management 
planning and implementation issues; 

-  raise  awareness  and  involve  stakeholders  (private  sector,  NGO's  and  the  citizens-
consumers); 

-  make  a  proper  use  of  structural  funds  and  other  sources  of  funding  to  accelerate  the 
necessary changes;  

-  apply  key  economic  instruments  (in  particular,  landfill/incineration  charges,  extended 
producer  responsibility  schemes,  pay-as-you-throw  schemes,  subsidies/penalties  for  local 
authorities  to  ensure  the  development  of  separate  collection)  which  have  proved  to  be  
efficient  in changing  the  behaviour of  the  concerned  actors  in applying  the  waste  hierarchy 
and in generating financial means to develop waste management operations accordingly.  

5.2. Challenge 2 "Monitoring and quality reporting" 

Possible actions by the Commission: 

The  legislative  proposal  aims  to  clarify  the  key  definitions  related  to  the  most  relevant 
indicators and targets. It also clarifies and simplifies  reporting modalities and calculation 
methods.  The  proposal  also  includes  the  creation  of  electronic  waste  registries  by 
Member States and more stringent rules for EPR schemes to ensure the reliability of the data 
collected.  

In addition, the Commission intends to: 

7 

 
 
− 

− 

increase  and  improve  guidance  on  data  collection  and  reporting,  in  line  with  the 
targets and the waste hierarchy; 

reinforce of quality checks and validation procedure; 

−  promote exchange of good practices through regular workshops involving Member 

States. 

Possible actions by the Member States: 

Member  States  should  ensure  that  sufficient  resources  are  made  available  at  national, 
regional  and  local  level  for  the  monitoring  of  waste  management  policies,  notably  the  data 
collection,  their  statistical  treatment,  their  validation  as  well  as  the  proper  reporting  and 
validation processes in liaison with the Commission services. 

They should also develop integrated electronic waste registries. 

Member  States  need  to  put  in  place  transparent  data  reporting  schemes  to  be  used  by 
public  and  private  actors,  notably  municipalities,  EPR  schemes,  waste  management 
companies and recyclers. 

Member  States  should  also  set  up  training  for  local/regional  authorities  and  relevant 
stakeholders.  In  addition,  they  can  participate  in  exchange  platforms  and  peer  reviews 
with other authorities and Eurostat. 

8 

 
 
 
6. Summary table 

Implementation 
challenge 

1) Reaching the targets 
within the deadline 
(especially for the less 
advanced Member 
States): development of 
infrastructures (for 
separate collection and 
treatment), adaptation of 
waste management 
plans, enforcement and 
coordination between 
authorities at all levels, 
reduction in the use of 
landfilling capacities, 
implementation of 
economic instruments. 

Support action 

Timing 

2022, 2027 

After adoption 

2025 and 2030 

2013-2017 

Commission:  

- Legislative proposal: 

‘early warning’ procedure  

• 
•  minimum requirements for EPR (and 

• 

related guidance) 
time  derogation mechanism 
accompanied with a compliance plan   

- Compliance-promotion exercise:  

• 

technical guidance and specific 
initiatives for the promotion of good 
practices concerning waste prevention, 
efficient separate collection as well as 
the management of C&D waste and 
hazardous waste.. 

•  assessment of national and/or regional 

waste management plans 
•  organisation of seminars 
• 

implementation roadmaps including 
country-specific recommendations  

- Country specific recommendations in the 
context of the Annual Semester  

Annual (ongoing) 

- Modelling tool (with the EEA) 

- EEA Review of Waste Prevention 
Programmes  

- EU funding : 

Annual 
2014) 

(as 

from 

•  ex-ante conditionalities  

2014-2020 

•  close collaboration with MS in definition 

of investments programmes  

•  LIFE (integrated) projects in support of 

implementation  

Yearly calls 

Member States:  

-  sufficient resources made available at 
national, regional and local levels for the 

Permanent 

9 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
2) Monitoring and 
quality reporting 

planning, the enforcement and the operational 
aspects of waste management policies  

- training and technical assistance in order to 
build the necessary capacities, especially at 
local level  

Permanent 

- dialogue with the Commission about planning  
and implementation  

Compliance exercise: 
2014-2017 

Early warning:  2022, 
2027 

- raise the awareness and involve stakeholders  

- optimal use of structural funds and other 
sources of funding  

- implement key economic instruments (in 
particular, landfill/incineration charges, EPR 
schemes, pay-as-you-throw schemes)  

Commission:  

Permanent 

2014-2020 

Permanent 

-  legislative  proposal  (more  precise  definitions 
of  key 
indicators,  clarification  of  reporting 
modalities  and  calculation  methods,    creation 
of electronic waste registries)  

After adoption (incl. 
implementing act) 

- guidance on data collection and reporting  

- reinforcement of Commission's capacities for 
quality checks and validation  

Starting 2015 

2015/2016 

-  exchange  of  good  practices  through  regular 
workshops  

Permanent 
(ongoing) 

Member States: 

-  sufficient resources are made available at 
national, regional and local levels for the 
monitoring of waste management policies 

-  develop electronic waste registries  

 - set up trainings  

-  participate  in  exchange  platforms  and  peer 
reviews  

Permanent 

2016 

Permanent 

Permanent 
(ongoing) 

10