REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the re-examination of the WEEE recovery targets, on the possible setting of separate targets for WEEE to be prepared for re-use and on the re-examination of the method for the calculation of the recovery targets set out in Article 11(6) of Directive 2012/19/EU on WEEE
Date: 2017-04-18
Institutions: Directorate-General for Environment, European Commission
Subjects: electrical equipment, electronic equipment, electronic waste, pollution control measures, storage of waste, waste disposal, waste recycling

EN 

   EN 

   EUROPEAN COMMISSION  Brussels, 18.4.2017  COM(2017) 173 final   REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the re-examination of the WEEE recovery targets,  on the possible setting of separate targets for WEEE to be prepared for re-use  and  on the re-examination of the method for the calculation of the recovery targets set out in Article 11(6) of Directive 2012/19/EU on WEEE   
 
 
1. INTRODUCTION 

Directive 2012/19/EU on waste electrical and electronic equipment (1) (the WEEE Directive), 
which is a recast of the earlier Directive 2002/96/EC ("the old WEEE Directive") entered into 
force on August 2012 and had to be transposed by Member States by 14 February 2014. 

The  WEEE  Directive  lays  down  rules  on  the  management  of  WEEE  with  a  view  to 
contributing to sustainable production and consumption by, as a first priority, the prevention 
of WEEE and, in addition, by the re-use, recycling and other forms of recovery of such waste 
so as to reduce the disposal of waste and to contribute to the efficient use of resources and the 
retrieval of valuable secondary raw materials. 

In  this  context,  the  WEEE  Directive  introduces  in  Article  11  and  Annex  V  combined 
preparing for re-use and recycling targets as well as recovery targets for WEEE and sets out in 
Article 11(2) the methodology for the calculation of these targets. 

This report answers to the following requirements for the Commission set out in article 11(6) 
of the WEEE Directive:  

1.  Re-examine the recovery targets referred to in its Annex V, Part 3; 

2.  Examine the possibility of setting separate targets for WEEE to be prepared for re-use; 

3.  Re-examine the method for the calculation of the achievement of the recovery targets 
referred to in Article 11(2) with a view to analysing the feasibility of setting targets on 
the basis of products and materials resulting (output) from the recovery, recycling and 
preparation for re-use processes.  

To prepare the present report, the Commission contracted independent consultants to review 
relevant statistical data, literature and technical information and held consultations with major 
stakeholders  (Member  States,  industry  associations,  extended  producer  responsibility  (EPR) 
compliance systems, NGOs and independent experts) (2).  

The  purpose  of  this  report  is  to  inform  the  European  Parliament  and  the  Council  of  the 
Commission's assessment and conclusions related to these issues.  

1 Official Journal L 197, 24.7.2012, p. 38. 
2 "Study on WEEE recovery targets, preparation for re-use targets and on the method for calculation of the recovery targets": 
http://ec.europa.eu/environment/waste/weee/events_weee_en.htm . 

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2. RE-EXAMINATION OF THE WEEE RECOVERY TARGETS 

2.1. Objective 
Electrical and electronic equipment (EEE) falling within the scope of the WEEE Directive is 
currently classified under 10 “product - oriented” categories set out in its Annex I and II (3). 
From  15  August  2018,  EEE  will  be  classified  under  6  “collection  -  oriented”  categories  set 
out in Annex III and IV (4). The recovery targets to be met by producers according to Article 
11(1) are applicable per EEE category as set out in Annex V. 

As recycling and recovery targets are contingent on the mass and material composition of the 
individual  categories,  the  change  in  categorisation  may  affect  the  overall  mass  and  the 
material composition of the new categories. Therefore, the main reason for the re-examination 
of  the  recovery  targets  is  to  assess  whether  the  change  in  EEE  categories  resulted  in 
significant changes to the ambition level of these targets.  

2.2. Assessment with regard to the re-examination of the WEEE recovery targets 
The analysis focused on the comparison between the level of ambition of the recovery targets 
applicable for each one of the 10 categories from 15 August 2015 until 14 August 2018, as set 
out in Part 2 of Annex V, and the recovery targets applicable for each of the 6 categories from 
15 August 2018 onwards, as set out in Part 3 of that Annex V.  

The study came to the following main conclusions: 
  For the large majority of products there is no change in the absolute value of the recycling 
and recovery targets due to the transition from 10 to 6 categories of EEE. Where there is, 
the change is not significant. Moreover, the very few products affected by the change in 
targets  (e.g.  professional  tools,  medical  equipment,  professional  monitoring  and  control 
equipment),  form  only  a  very  small  fraction  of  the  overall  WEEE  stream,  and  thus  the 
impact on the overall recovery and recycling rate is negligible. 

  The change in the categories results in an increase of over 7% of the mass to be recycled, 
which means that the recycling targets applicable from 2018 onwards (under 6 categories) 
are more ambitious than the targets applicable from 2015 to 2018 (under 10 categories). 
This is desirable since the targets should progress in time and enforcing the 2018 targets 
(6  categories)  will lead to  a slight  increase of the environmental and economic benefits, 
due to the increase in materials recovered and recycled.  

  The  clustering  under  the  6  categories  is  much  closer  to  the  operations  at  collection  and 
treatment  level.  It  can  thus  also  increase  consistency  in  data  reporting  and  limit  the 
administrative burden both for WEEE collection and treatment facilities and for national 
authorities when consolidating and checking data consistency. 

2.3. Conclusion  
On  the  basis  of  the  assessment  carried  out,  the  Commission  concludes  that  there  is  no 
justification  for  revising  the  recovery  targets  with  respect  to  the  6  new  categories  of  EEE 
referred to in Annex V, Part 3 as these targets maintain a similar level of ambition than the 
targets set out under the current 10 categories of EEE as referred to in Annex V, Part 2.  

3  These  categories  are  the  following:  1)  large  household  appliances,  2)  small  household  appliances,  3)  IT  and 
telecommunications  equipment,  4)  consumer  equipment,  5)  lighting  equipment,  6)  electrical  and  electronic  tools,  7)  toys, 
leisure and sports equipment, 8) medical devices, 9) monitoring and control instruments, 10) automatic dispensers. 
4  These  categories  are  the  following:  1)  temperature  exchange  equipment;  2)  screens,  monitors  and  equipment  containing 
screens  with  a  surface  greater  than  100cm2;  3)  lamps;  4)  large  equipment  (any  external  dimension  greater  than  50cm);  5) 
small  equipment  (no  external  dimension  greater  than  50cm);  6)  small  IT  and  telecommunications  equipment  (no  external 
dimension greater than 50cm). 

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3.  EXAMINATION  OF  THE  POSSIBILITY  OF  SETTING  SEPARATE  TARGETS  FOR WEEE  TO  BE 

PREPARED FOR RE-USE  

3.1. Objective 
The  appropriateness  of  setting  separate  targets  for  preparation  for  re-use  was  examined  by 
compiling the relevant practices applied in Member States, analysing the drivers and obstacles 
for preparation for re-use and, on the basis of the information available, assessing whether it is 
feasible and practicable to set separate targets for WEEE to be prepared for re-use. 

3.2. Assessment with regard to the possibility of setting separate targets for WEEE to be 

prepared for re-use 

In 2012, about 70,000 tonnes of WEEE were reported by Member States to Eurostat as being 
re-used/prepared  for  re-use  in  the  EU.  However,  reporting  of  separate  data  on  re-
use/preparation  for  re-use  is  voluntary  for  Member  States  and  only  fifteen  Member  States 
reported related data in 2012, as presented in the table below. 

Table: Quantities of WEEE collected and re-used/prepared for re-use in 20125 

Member State  WEEE collected 

Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus 
Czech Republic 
Denmark 
Estonia 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 

(tonnes) 

77,402 
116,458 
38,431 
16,187 
2,514 
53,685 
76,200 
5,465 
52,972 
470,556 
690,711 
37,235 
44,262 
41,177 
497,378 
4,694 
14,259 
5,010 
1,506 
123,684 
175,295 
43,695 

WEEE re-used/ 
prepared for re-
use  
(tonnes) 
1,248 
4,068 
292 
0 
42 
0 
0 
0 
557 
9,568 
11,845 
0 
0 
360 
- 
37 
0 
0 
0 
475 
791 
33 

Re-use/ preparation for 
re-use rate on the basis of 
WEEE collected  

2% 
3% 
1% 
0% 
2% 
0% 
0% 
0% 
1% 
2% 
2% 
0% 
0% 
1% 
- 
1% 
0% 
0% 
0% 
0% 
0% 
0% 

5 Source: "Study on WEEE recovery targets, preparation for re-use targets and on the method for calculation of the recovery 
targets": http://ec.europa.eu/environment/waste/weee/events_weee_en.htm . (Data source: Eurostat) 

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Member State  WEEE collected 

Romania 
Slovakia 
Slovenia 
Spain 
Sweden 
United Kingdom 
TOTAL 

(tonnes) 

23,083 
22,671 
9,430 
157,994 
168,612 
503,611 
3,474,177 

WEEE re-used/ 
prepared for re-
use  
(tonnes) 
0 
0 
30 
351 
0 
41,630 
71,327 

Re-use/ preparation for 
re-use rate on the basis of 
WEEE collected  

0% 
0% 
0% 
0% 
0% 
8% 
2% 

Given  the  high  number  of  Member  States  that  did  not  report  separately  the  quantities  of 
WEEE  re-used/  prepared  for  re-use,  but  also  the  lack  of  specifications  on  the  activities  that 
were  considered  as  re-use  and  preparation  for  re-use  in  Member  States'  reports,  this 
information is not sufficiently representative. This data leads to conclude, however, that, with 
the  exception  of  a  few  Member  States,,  re-use  and  preparation  for  re-use  are  not  well 
developed  at  EU  level..  The  study  found  that  there  are  significant  differences  in  the 
consumption patterns between Member States as regards used/ second –hand products which 
has affected the level of development of the sector. This makes it somewhat difficult to assess 
the potential for preparation for re-use across the EU. 

The  study  analysed  the  feasibility  of  setting  a  separate  target  for  preparation  for  re-use. 
Regarding economic impacts, preparation for re-use could result in significant revenues and 
savings  to  the  economy.  Due  to  positive  effects  on  job  creation  and  due  to  the  opportunity 
given  to  parts  of  the  population  with  low  income  to  buy  low  cost  household  appliances, 
preparation  for  re-use  has  positive  social  impacts  as  well.  Possible  environmental  impacts 
from preparation for re-use are related to the avoidance of manufacturing new EEE, and waste 
prevention.  However,  energy  consumption  should  be  taken  into  consideration  since  new 
appliances are usually more efficient than re-used older equipment.  

On  the  other  hand,  setting  a  separate  target  for  preparation  for  re-use  would  require  good 
knowledge of the quantities of WEEE that could be prepared for reuse in the EU and of the 
economic feasibility of changing logistics, to ensure that the potential for re-use of WEEE can 
indeed  be  realized.  In  particular  in  Member  States  where  preparation  for  re-use  is  under-
developed,  it  would  require  changes  to  the  collection  structures  and  establishment  of 
procedures for the testing of WEEE when collected and prior to any further transfer. It would 
also require the development of a reporting system to eliminate the risk of double counting as 
WEEE  might  be  collected  and  prepared  for  re-use  several  times  before  recycling.  The 
reporting system should also distinguish between the real flows of WEEE prepared for re-use 
and  equipment  that  is  re-used  without  being  waste.  In  addition,  if  a  separate  target  on 
preparation for re-use target is put in place, there is a risk that producers of EEE contribute 
unequally to the achievement of the target since the demand for second hand products is not 
the same for all the EEE categories and in some cases different even for different brands of 
the  same  type  of  equipment.  While  the  risk  of  contributing  unevenly  also  exists  under  a 
combined target, it nevertheless provides for more flexibility to compensate the differences in 
demand for second hand products that exists between the EEE categories. 

In conclusion, the study confirmed that setting a separate target on preparation for re-use will 
create  additional  obligations  for  economic  operators  and  Member  States  (e.g.  reporting, 

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monitoring) and a significant increase in administrative burden. The combined preparation for 
re-use and recycling target applicable from 2015 onwards  (Annex V, Part 2 and 3), enables 
Member  States  to  reach  this  target  by  favouring  both  recycling  and  preparation  for  re-use. 
However, Member States setting national targets for preparation for re-use of WEEE are more 
likely  to  actively  promote  practices  to  increase  preparation  for  re-use,  including  promoting 
access to WEEE to personnel from re-use centres, as required by Article 6(2) of the Directive, 
thereby achieving more positive results with regard to the EU waste hierarchy for WEEE.  

3.3. Conclusion  
On the basis of the key findings of the assessment, the Commission concludes that it is not 
appropriate  at  this  stage  to  set  separate  targets  for  WEEE  to  be  prepared  for  re-use  in  the 
WEEE  Directive.  The  Commission  will  however  promote  the  exchange  of  information 
between  Member  States  to  identify  good  practices  in  Member  States  where  targets  for 
preparation for re-use of WEEE have been set at national or regional level or under extended 
producer responsibility schemes.  

4.  RE-EXAMINATION  OF  THE  METHOD  FOR  THE  CALCULATION  OF  THE  ACHIEVEMENT  OF 
THE  RECOVERY  TARGETS  SET  OUT  IN  ARTICLE  11(2)  OF  DIRECTIVE  2012/19/EU  ON 
WEEE 

4.1. Objective 

Article  11(2)  of  the  WEEE  Directive  defines  the  method  for  the  calculation  of  the 
achievement of the recovery targets as dividing the weight of the WEEE entering the recovery 
or  recycling/preparing  for  re-use  facility  (input-based  approach)  by  the  weight  of  all 
separately collected WEEE for each category, expressed as a percentage.  

The  re-examination  of  this  calculation  method  considered  whether  it  is  feasible  and 
practicable to set targets on the basis of products and materials resulting from the recovery, 
recycling and preparation for re-use processes (output-based approach). 

4.2. Assessment with regard to the re-examination of the method for the calculation of 

the achievement of the recovery targets 

The study first analysed the available output-related data on Member State level from several 
different information sources (6) including a stakeholder consultation. It concluded that almost 
no data on materials resulting (output) from the recovery, recycling and preparation for re-use 
processes ("output-related fractions" or else mentioned as "material fractions") is available at 
Member States' level and only a limited database exists, in particular when extended producer 
responsibility schemes apply reporting tools developed under specific technical specifications 
(7).  

On this basis, it was concluded that the most promising approach to collect output-related data 
is  for  Member  States  to  further  enforce  the  requirements  under  Article  11(4)  of  the  WEEE 
Directive  to  ensure  that  producers  or  third  parties  acting  on  their  behalf  keep  records  on 
output- related  data as  well,  and to  promote  tools  to  be  used  for  the  harmonisation  of  these 
records.  

6  EUROSTAT  data,  Member  States’  Implementation  Reports  for  Waste  Framework  Directive  2008/98/EC  and  WEEE 
Directive, consultations with national authorities 
7 WEEELABEX technical specifications document and European Standard EN 50625-1 on Collection, logistics & treatment 
requirements for WEEE - Part 1 and TS 50625-3-1 -- Part 3-1 

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Regarding  the  environmental  benefits  from  introducing  output-  based  recovery  targets,  the 
study highlighted that this may give an incentive to increase recycling efficiency via technical 
improvements.  However,  given  that  valuable  materials,  which  are  present  in  significant 
amounts in WEEE, are already almost completely recycled due to their economic value, total 
output-based  targets  may  only  have  a  limited  influence  on  actual  recycling  practices.  The 
study  also  concluded  that  output-based  (or  material-based)  targets  will  not  significantly 
influence  monitoring  of  de-pollution  of  WEEE,  given  that  normally  this  takes  place  at  an 
early  step  of  the  recycling  process,  as  a  pre-treatment  operation.  Therefore,  from  an 
environmental  perspective,  priority  should  be  given  to  enforcement  by  Member  States  of 
selective  treatment  including  de-pollution,  as  already  required  according  to  Article  8  and 
Annex  VII  of  the  WEEE  Directive.  Overall,  strict  implementation,  enforcement  and 
monitoring of WEEE collection targets have a strong impact on actual recycling/ recovery, as 
it  has  been  shown  that  WEEE  entering  the  collection  schemes  is  usually  being 
recovered/recycled at high rates in terms of its weight.  

In the Circular Economy Action Plan, the Commission set out to promote the development of 
European  standards  for  material-efficient  recycling  of  WEEE,  as  well  as  of  waste  batteries 
and  other  relevant  complex  end-of-life  products,  to  increase  recycling  of  critical  raw 
materials.  This  is  considered  a  more  pragmatic  approach  than  setting  binding  output-based 
recycling targets. 

4.3. Conclusion   
On  the  basis  of  the  assessment  carried  out,  the  Commission  concludes  that  there  is  no 
overriding  justification  for  replacing  the  input-based  method  for  the  calculation  of  the 
achievement of the recovery targets by setting targets on the basis of products and materials 
resulting  from  the  recovery,  recycling  and  preparation  for  re-use  processes  (output-based 
approach). 

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