CELEX: 51976PC0711
Language: en
Date: 1976-01-06
Title: Proposal for a COUNCIL DECISION FOR adopting a research programme in the field of Treatment and Use of Sewage Sludge (concerted action) (submitted to the Council by the Commission)

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 ---pagebreak--- COMMISSION OF THE EUROPEAN COMMUNITIES
                                             COM(76)711 final
                                             Brussels . 6 January 1977
                                Proposal for a
                            COUNCIL DECISION FOR
                          l
              adopting a research programme in the field of
                    Treatment and Use of Sewage Sludge
                             ( concerted action )
              ( submitted to the Council by the Commission )
                                                            '
 C0M(76 ) 711 finr-l
 ---pagebreak---                                    -   1
                                  COGITEI
                                                                   page
I    Introduction                                                    2
II   Valuation of COST Project 68 ar-      « lusions                 2
III  Definition of the problem       .                               3
IV   Proposai of a new programme                                     4
     A) General considerations                                       4
     B) Topics of Research                                           5
V    Durât ion of the Pro/frramme                                    8
VI   Implementation of the programme                                 8
VII  Fincuicia'i VolTirne                                            Q
Draft Council Decision for adopting ?      c».rch programme in the  10
field of Treatment and Use of Sewage , (' verted aotion )
Annex I tc the Drafi. Council Decision                              13
Annex II to the liraft Cotmcil Deoision                             15
 ---pagebreak---                         Research programme in the field of
                        "Treatment and 'fee of Sewage Sludge"
                                   ( Concerted Action )
Introduction
Research in the field of sewagi sludge processing was the subject
of COST I-roject 68 , which ran from 197 ^ until 1974 . This project
covered only part of the problemG related to the environmental im­
pact of the sludges produced during waste water treatment .
Research ?n this field was therefore included in the 2rd Environ­
ments] Research Program: 8 of the 3uroper,n Economic Community ( in­
direct Action ), approved by the Council of Kinisters on 15 March
1976 .     In view of the experience gained during thrf implementation
of CCS? Project 68 , research on treatment end use of seivage sluug3
is to be executed as a Concerted Action ; interested non -member
cor •" tries will "he invited to participate ,
Evr.lui-.t ? on o f COST Project 6P and conclusions
COST Project C3 " Sewage Sludge Processing", based on an Agreement
signed in Brussels 011 23 November 1971 1 started on 1 August 1972
and ended officially on 31 July 1974 . Since most of the national
projects rjre financed until the end of 1974 practical work went
on ur/fcil this date .
The following countries participated in the project :
Me nber countries                                   third countries
Denmark                                            Yugoslavia
                                      t
Germany                                            Norway           ,
France                                             Switzerland
Italy                                               Swedon
The Netherlands                                    Finland
United Kingdom                                     Turkey
Belgium
The aims of the projects were limited to some selected aspects of
sewage sludge treatment and disposal . The three main topics were
 ---pagebreak---        a) standc.r iization of characteristic values of sludge ,
       "r ) elaboration of methods for the characterization of sludge
            parameters ,
       c ) comparative tests of combined sludge–refuse incinerators .
      Details on the implerentation of the project and the major results
      are conprel.enpj vely dealt in the Final Report ( Tocument EUC0/3P/
      48/75 ).
      Eince COHT Project 60 was one of the first attempts to coordinate
      European research within the framework of COST , there was some delay
      in getting it off the ground , and the running time of only two years
      was certainly too short , to achieve all of the rather ambitious goals
      set a.;' the beginning . Tha Pro jyet . is , Jiokcvery.caonsidered to be-va
      Eucc3sn,.-nnd alx participants agreed that a follow-up programme is
      highly justified , from the viewpoint of the scientific needa'sas well as
      thcexor.cis.c nf international .•colldboration *: *            ' ;    •   ;•
      T^ra is                  agreem-anj • arcag- the' poi'-ticipating nsiexibists .that .
      the scope of -a follow^-if pro{.;ianao should be . broader . In "por-icular
      the environneutcJ. problems of sludge use should be covered .
      Eased on recommendations oi' the Management Committee of Project 68
      and on tfcsir own study of the subject , the Services of the Commission
      prepared an outline of a new project , which was submitte to the
      Scientific and Technical Research Committee ( CRE3T ) in early 1975 *
      Based on a recciraend'-.tion from CEEST , the Council of Ministers in
      March 1975 recognised tie Community Interest of this research ,
      Following this , an experi, committee di 3 cussed in detail the re­
       search. needs , talcing into account an inquiry on nludg3 disposal
       rjid use in the interested countries and an inventory of ongoing
          at i o nal res e aroh .
       The recommendations of inis expert committee , prepared over 3
       meetings ( 23 June , 26 September , 4 December 1975 ) » are given
       hereafter .       Tue programme waf. approved by the Advisory Committee
       on Programme Management for Environmental Research 011 4 March 1976 .
III . Definiti on ox the prob lem ,
       Daring the purification of waste-water up to 700 kg sewage sludge ( ° )
        ( corresponding to 30-40 kg dry matter ) per year and inhabitant are
       produced ; to "this huge amount large quantities of bio-degradable
        industrial sludges ( from breweries , food industry , etc ...) hax*e to
       be r,i(_3d . These sludgeo contain about 95?J water ; they are difficult
        to handle from a technological point of view . Improper disposal of
(">) the amount depends on the treatment procedure , and varies from about
     300 kg ( digested sludge ) to about 700 kg ( raw primary and secondary
     sludge ). •
 ---pagebreak--- sewage sludge causes serious environmental problems ( odour nuisance ,
water pollution by run-off, eutrophication , microtia! pollution ,
heavy met-il contamination); disposal at sea or on land, so far
widely used , will therefore come under closer supervision , as will
incineration causing air pollution .
It would be desirable to solve these problems by improving sewage
sludge processing in order to obtain products which can be used in
agriculture or for land reclamation , minimizing pollution exA dis­
posal co^-t . The fact that the price of inorganic fertilizers .has a
tendency to increase w: 11 favour these goals .
Research in this field should therefore , in principle , aim at
– the improvement of treatment processes in order to obtain
   "marketable " products ,
- a thorough assessment of environmertal problems related to land
   use. of sewage sludge , including hygienic and esthetic aspects ,
~ reducing cost of sludge treatment and disposal .
Research concerning nludge processing and sludge use is complicated
by a :iu~nber of inpcrbant analytical problems ; due to the complex
nature of tludge , many of thetie are still unsolved , or current
methods are unsatisfactory . Therefore , high priority is attributed
to research into the methodology of sludge characterization .
Proposal      a-     programme
A ) General considerations
 In m<m3r places , fo? economical reasons , sewage sludge is still dis­
posed of at sea or on land without further treatment . The ecj-
 logiocJ. consequences are not yet fully assessed , but it goes for
 granted that alternative solutions have to be promoted .
 Incineration of sludge was deemed for a long tine to be the be3t .
 solution of the sludge problem , and was one of the "main scopes 01'
 Project 68 , but recent developments ( rising energy cast , need for
 recycling of raw materials ) indicate that sludge incineration will
 be limited in the future to certain geographical situations ; further
 research was not recommended .
 The advisability of including research on the industrial use of
 sludges , e.g. in the fabrication of construction materials , was
 slso explored ; it was concluded , that this is mainly industrial
 research , and that the amounts which can be industrially used are
 relatively snail . The evolution in this field should be closely
 followed , and relevant research possibly included at a later1 stage .
 It is generally recognized that the most practicable solution for
 sludge disposal is its use in agriculture and for land reclamation ,
 ect ... Therefore ail research aiming at the elimination of
 ---pagebreak---                                         -5-
constraints to land spreading are of primary importance .        These
constraints 6i*e mainly
- hygienic aspects
- odour nuisance
- content of pollutants , in partifcular heavy metals and persistent
    organic compounds , which nay influence quality and quantity of
    croj.-3 with obvious consequences for the food chain
- possible negative effects on soil quality after continued appli­
    cation
~ contamination of ground and surface water
An economic use on land , ho^evpr , requires further on–pi wit treat­
ment at low cost . Considerable work has been done already , but
teciinicE.1 processes are far from being perfect and need further
reducti 'i-i in cost .
In principle , the processing of " raw sludge" as it is produced in
waste water treatment plants , has to aim at
- a reduction of quantity and volume , to be achieved by degradation
    of organic matter and/or removal., of water ,
- a reduction of the polluting potential , including sanitary aspects
    and , in particular , the elimination of bad odours ,
Two subsequent procedures are applied
- anaerobio and aerobi c digestion ( "stabili zation" ) ,
- mechanical dewatering.                        1
 In order to imrese       the ( direct or indirect ) "economic" value of the
 final product , further processing , e.g. composting of sludge , is
practised .
B ) Topics of Research
For practical reasons the programme proposal given in the following
 is subdivided into 4 main headings ;
1 ) Sludge stabilization and odour problems
 2 ) Devatering of sludge
 3 ) Problem" related to slv.dge characterization ( pollutants , micro­
      biology )
   ) Environmfcnial . problems related to land use of sewage sludge
 Thore is , of course , an overlap between these fields , and the attribution
 of items is in some cases - arbitrary. Tho list is not ranked by priority .
 ---pagebreak---                                        -6-
1 c Sludge stabilization grid odour problems
1.1 .   Odour characterization aiid objective odour measurement
1.2 .   Relationship "between odour nuisance and "degree of stability "
1.3 .   Definition and analytical proce&uren for the determination of
        other parameters for the " degree of stability" and their links
        to odour nuisance ;v in part continuation of COST Project 68 ), in
        particular
        ~ content of total orgajiic matter
        - lipoid content
        ~ protein content
        - carbohydrate content
        – enzyme activities a- id other biochemical parameters
        - H S formation
        - redox potential
        - oxygen uptake
        – r?.s lormation
1.4 »   Comparative cvaluati^n of different stabilization prccedures
        - anaerobio friabili zation
        " aerobi c stabilization
        •• ^nemical stabilization
        in view of the aims mentioned above ( reduction of quantity and
        volume reduction of polluting potentials ) and in view of their
        effacts on dewatering properties and sludge use .
2 . Problems related t o neohanical sludge dewaterir.g
2.1 .   Basio i-esearch on ;*ater binding forces for a better understanding
        of the colloidal state of sludge , location of electrical charges ,
        Zeta potential , etc ...., and their importance for the action of
        flocculants .
2.2 .   Development of analytical procedures and their standardization
        for the prediction of dewav.ering properties ( continuation ef
        COST Project 68 ) , in particular
        - empiric testn for " centrifugability"
        - partiexe size distribution
        – specific
            *
                    filtration resistance   J
        ~ their connection with already standardized tests , e . g . viscosity
           or oapillrry suction time .
               \
 ---pagebreak---   .3.         i-'.c'.,:.e;o3 related to the use of flecoul ants , for economic*
              reasons considered to be of primary importance , in particular
              « standard flocculation agents for te3t pumoses
              ~ floccc-lating properties of polymers as a function of their
                   chemical nature
              - j repeat ?. on and stability of flocc^lant solutions
                   - ptim-.m use of /"looculantrr and of combination thereof as a
                   function of sludge characteristics and rievratering techniques
              - optimum timing of flocculant addition
              – possible harmful efiects of flocculants on the environment
2 P 4®         Evaluation of thickening and dowatoring equipment
3 • Anaiytj.ca.l _ problems related to sludge treatment and use
3.1 .          Characterization of pathogens in sewage sludge
3.2 ,          Critical evaluation, of the efficiency of des infection procedures :
               in particular
               - pasteurization
               - désinfection by irradation
               - poni cation
3.3 .          Research into consent and chemical state of pollutants in sludge .,
               in particular" of heavy metals and persistent organic compounds
               and the establishment of standardized analytical methods for
               tiic.ir determination ( in part continuation of COST Project 68 )
3„ /i „        Influence cf industrial wastes introduced to waste water purifi­
               cation plants on pollutant content .
        Er.vf-i^.mert al Problems related to land use of sewage sludge
  . .1.         Fr*- ct quality
  4.1.1 . Fp^ci processing of kludge for agricultural use ( e.g. composting
                  tofet. with refuse ),
   4.1.2 . ].mproy »n-t of desinfection procedures
       . 1 . 3 . T ^rnova. * heavy metals and other pollutants
    4.2 .          i.:fiocts    sludge application
     ■1.2.1 . Trans fei          pollutants to plants as a function of their chemical
                    state ir.    at ion to different soil characteristics , and harmful
                    ef.7e-ts      agetation
                                                                                   .../
 ---pagebreak--- 4.2.2 . Critical evaluation of the effects cf long range arp <        LU
         of alv.Ige or processed sludge ( compost ) on roil qualify , and
         effect t; on ground water
4.2.3 . Optimum land use of sewnge kludge in general , and , in parti­
         cular , of sludges from dephosphaiation plants .
Durât ion of tne Programme
A duration of 3 years is proposed for this programme .
Implementation of the programme
The project is implemented as a " concerted action" within the frame­
work of tbe Environmental Research Programme of the IDuropean      Commu­
nities , Non-member countries will be invited to participate .     In prin­
ciple member countries should subject all ongoing or planned       govern­
ment sponsored research projects covered by the programme to       a co­
ordination within the framework of the concerted action and inform
the other participating countries on results , planning , etc . ... A
Research Coordination Committee is ebtabliyhed , la which the member
countries and Commission are represented b,y a delegate , who may be
assisted by experts .
Provirions will be made for an adequate representation of partici­
pating non-member countries on thi3 Committee .
The cjmpetences of the Advisory Committee on Programme Ilanagement
for Fnvironir.ental Research cover also the implementation of this
programme ; thij Committee is , in particular , duly qualified for
giving this research its proper place within the overall environmen­
tal research programme of the European Communities .
The Research Coordination Committee is the body in which the exchange
cf information between the member countries and the Commission is
staged .
Beyond this , the terms of reference of this Committee are essentially
- to assise in the co-ordination of the national research projects
    executed in this field and to advise the executing laboratories
i. in order to avoid unnecessary duplication as well as not to leave
  . any gaps in.ivhe :*. -programme ;
- to advise governments and the Commission with regard to research
    needs in this field ;
 - to evaluate the results of research and to draw conclusions with
    regard to their applications ;
 - to promote exchange of experience between the scientists involved
    by organizing symposia , etc ,
 - to promote the dissemination of knowledge .
 ---pagebreak---                                      - 9   -
. -i . F ": n  al Volume
       The financial volume of the recisarch in this field in + he member
       countries is estimated at 6 m.u.a. for a 3-year period. This figure
       in based on estimates of the present annual volume of ongoing re­
       search projects , as communicated by tho experts .
       The inventory of ongoing research projects iniica.tu3 that , with a
       few ( xceptions , all member countries would contribute research in
       4 research fields .
       The cost of co-ordination , on charge of the Community budget , is
       estimated at 140.000 u.a. for the 3 years period.
 ---pagebreak---                                        - 10
                                  COUNCIL DECISION FOR
                  adopting a research programme in the field of
                       Treatment and Use of Suwage Sludge
                              ( concerted action )
The Coui^cii. of + he European Communities ,
HAVING liEGAR1) to the Treaty establishing the European Economic Community ,
and in particular / rticie 235 thereof ;
HAVING REGARD to the proposal of the Commission ;
HAVING REGAliD to the opinion of the European Parliament ;
FHEREAS by vJrtue of Ar+iole 2 of the Treaty , the Community has "been assign­
ed. thi task of promotir *; throughout the Community a harmonious develop­
ment of economic activities , a cor.tinuoixs and bal-Jiced er^ar.oicn and an
accelerated raising of the standard of living ;
T 'HET?EAS in its declaration of 22 November 1973 ,      ?r!uncil of the European
Com.nun5 ties has approved the principles and objectives oi' a Corjjiunity en­
vironmental policy and the general description of the actions to b3 under­
taken o-t Community level ;
UHE7EAS tha Council stressed in its Resolution of 14 January 1974 on an
in:r..ia1 outline programme of the European Communities in the field of
soignee and technology that an appropriate approach should be adopted
tc - rds the whole range of available ways and means including concerted
ac . ons in an effort to ensure maximum effectiveness v;hile endeavouring
to .-.btain a fair allocation of tasks among the laboratories a.-.d research
bor en in the Community and the Ilernber stc.tes and th&t whenever it proves
do . rable cooperation with non-nember countries should be made possible ;
WET^KAS in its decision of 15 "arch 1976 the Council has approved a second
environmental research programme ;
MiE.vEAS a Community concerted research action in the .t'ield of treatment and
use of Fewage sludge is likely to contribute effectively to the achievement
of ;, he above mentioned aims , in particular with regard to xhe reduction of
env-ronmeiital pollution and +0 the economic use of resources ;                   »
MTU'EAS the Member Countries carry out research in this field , and agree
to subject this research ; the volume of which is estimated at about 6 m.u.a.,
to a coordination on Community level for a period of 3 years .
Mr riEAS the Treaty han not provided the neoe>3sary powers for this purpose ;
^ r::' 9EA3 the Scientific and Technical Research Committee (CREST) has given
i-os opinion with regard to the Commission proposal :
H'      DECIDUO
 ---pagebreak---                                            - 11 -
                                          Article 1
                                  for a period cf 3 years
"h : Community implement s/a concerted, research action in the field of Trei*-
. iv .-it ..nd Use of Sewage Sludge . within the framework of its Environmental Research
 »:rti^ranihi x .Tha a rlctiofi cuhsiots ini tht.6o.rordination.Lfit Community• level^of researc
which is described in Annex I and which forms part of the national research
programmes of the tlemter States ,
                                          Article P.
The. financial contribution by the Community i,o the realisation of the co­
ordination tiotion will be determined in the budgetary procedure . It is
estimated at 140.000 u.a. , the unit of account being defined according to
the financia". regulation in force .
                                          Article 3
To assist the Commi^&ion in the carrying out of the coordination action
and the Member Stages in the execution of the research projects in the con-
te:rt of this coordination , a Research Coordination Committee "Treatment and
Use of Sewage Sludge ", hereinafter referred to as "the Committee", is hereby
 established .
The terms of reference and the composition of this Committee CTO defined in
Annex II .
The Committee shall draw up its rules of procedure . Its secretariat will be
provided by the Commission .
                                          Article 4
 (a ) In accordance with a procedure to be adopted by the Commission in agree­
ment with the Committee , the Member States shall exchange regularly all
u.ioful information concerning the execution of the research covered by the
cro.'dination action . This information shall be treated as confidential if
requested by the Kemher State which provides it .
 ( b ) The Commission shall prepare yearly progress reports on the basis of the
 information supplied .
         At the end of the coordination period , the Commission in agreement with
th<: Committee , shall forward to the Member Stat es/ a report on the exeoution
and results of the coordination action .                                  European Parliaraen
 Th i Commission shall publish th:i a report six months after it has been for-
 '..T.rded , unless a Ilember State objects .
 In this case the report shall be distributed , at their request , solely to
  irie institutions and undertakings carrying out on the territory of Member
 States , a research activity justifying access to the knowledge resulting
  from the performance of the research covered by the Community „ coordination
 action . The Commission , in agreement with the Committee , m?vr make provisions
 that the report rera.iita confidential and is r.ot phased to third pea-ties .
 ---pagebreak---                                    -  12  -
                                 Article 5
The Community may , under the conditions laid down in Article 22o of the
Treaty establishing the European Economic Community , conclude agreements
with other Stages involved in European co-operation in the fielu of Scien­
tific and Technical Research (COST / to permit them to participate in the
coordination action which is the subject of this Decision .
                                  Article 6
Annex I to this Decision mr.y be amended by the Council , on a proposal by
the Commission , after consulting' the Committee , in the event of a substan­
tial ibhange in the financial or technical conditions governing the reacarch
whijh is covered by the coordination action .
                                  Article 7
This Decision comes into force on the day of its publication in the
Official Journal of the European Communities .
Done at                   aate                                For the Council
                                                              The President
 ---pagebreak---                                                X •j Vr'-.fX
                                                       Lrr--.iT. Counoi.L        '-' jj .::i si
                                                                   '.■o'jjicx.L ])*■         s . on
                                                                                                 on or.
                                                                                                     or, a rc-s earcn ,.. rc        ? ;  -f-h ?
                                                 -ijI'J> JJ    ">?
                                                               ''f Treatment
                                                                     Treatment and      and Us    Us ?3 of
                                                                                                         of Sewa«re
                                                                                                            Sewage Slut's-,-,
                                                                                                                    Sludgo
                                                                           (c oncerted -.cA ion )
The ;jtnk will be carried out with the main purpose of acquiring scientific and technical knowledge required for the iraple-
Kemo/b*.ot. of the programme cf Action of "the European Communities of th--, environment . The research will cover the following
topics :
                     Research topics                                                                            Division of research work among
                    –          ~i "                                                                                          me:..ber states
                                                                                                       B     BRD          DK        P      I    IRL NL DK
                                                                                                    Lux
l ) Sludge etcMlisation and odour problems :
    - definition and determination of "degree of
         stalility" and relationships to odour nuisance                                                                  x         x                   -
    - comparative eva] nation of stabilisation procedures                                                     x          x                 x
Z ) Problems related to sludge dewatering "
    - research on water binding forces                                                                                                              x
    - development and standardisation of methods for the
         assessment of dewatering properties                                                           x      x                    x       x           x
    - proU-jras related to the use of flocculants                                                             x                    x                   x
    - comparative ovaluation cf thickening and dewatering                                                                                  x        x
      ' eq-o.ipmf.nt
3 ) Analytical problema related to sludge treatment and use :
    - characterise tion of pathogens and evaluation of des-
         infsction procedures                                                                          x      x         x
    -* characterise fcion and determination of pollutants
         (he^s./ metals , persistent orgf.ai.ic compounds ) in
        sludge and c eve iopracnt of standardised analytical
        ιαο-ήΛοαε                                                                                      χ                           χ                χ  χ
 ---pagebreak---                          Research to^icî
                                                              jkvision of research work among
                                                                          member states
                                                        B  BRD        DEC
                                                                                        IRL   NL UIC
                                                       LUT
4) Environm^ntal problems related to sludge use :
   ~ special processing of sludge for agricultural
      use ( e.g. composting) including the improvement
      of desinfection procedures and pollutant removal      χ                 X
   - trai^fer of pollutants to plants and harmful
      effects on. vegetation                                         X
   - effects of long range sludge application
    • orrsoil - erualitv anüiground :/ater
   - optiau::! lane use of sludge , including sluage
      from dephosrhatation plar.ts
 ---pagebreak---                                       - 15 -
                   Arnex II to the Draft- Council Decig i on
                   on a research programme in the field of
                      Treat ment s.nd Use of Sewage Sludge
                               ( concerted action )
TESWS OF REFERENCE AMD COMPOSITION OF TIlE RESEARCH COOPJilNATIOK COMMITTEE
"TREATMENT AND USE OF P^'fAGE SLUDGE"
1 . The Committee shall :
    1.1 Contribute to the optimum execution of the programme by giving its
         opinion on all of its aspects on request from the Commission and
         on its own initiative .
    l«2r Evaluate the results and draw conclusions as regards to their
         application .
    1.3 Insure the exchange of information and dissemination of data and
         knowledge relating to the prograr.une .
    1.4 Keep abreast of the relevant research being done in the partici­
         pating states and in other countries .
2 . The Ccumittee 's reports and opinions shall be transmitted to the
    Commission and to the participating States . If nsoc3sary , minority
    opinions may also be mentioned .
3 . The Committee is composed of one representative from each participating
    State who will be responsible for coordinating the national contribution
    to the programme , and also one from the Commission . Each representative
    may be accompanied by experts .
4 . The Committee shall designate its Chairman for a period of one year .