CELEX: 51988PC0071
Language: en
Date: 1988-03-01
Title: PROPOSAL FOR A COUNCIL DIRECTIVE ON THE PREVENTION OF AIR POLLUTION FROM NEW MUNICIPAL WASTE INCINERATION PLANTS#PROPOSAL FOR A COUNCIL DIRECTIVE ON THE REDUCTION OF AIR POLLUTION FROM EXISTING MUNICIPAL WASTE INCINERATION PLANTS#(submitted by the Commission)

ARCHIVES HISTORIQUES
DE LA COMMISSION
COLLECTION RELIEE DES
DOCUMENTS "COM"
COM (88) 71
Vol. 1988/0016
 ---pagebreak--- Disclaimer
Conformément au règlement (CEE, Euratom) n° 354/83 du Conseil du 1er février 1983 concernant
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In accordance with Council Regulation (EEC, Euratom) No 354/83 of 1 February 1983 concerning
the opening to the public of the historical archives of the European Economic Community and the
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In Übereinstimmung mit der Verordnung (EWG, Euratom) Nr. 354/83 des Rates vom 1. Februar
1983 über die Freigabe der historischen Archive der Europäischen Wirtschaftsgemeinschaft und
der Europäischen Atomgemeinschaft (ABI. L 43 vom 15.2.1983, S. 1), zuletzt geändert durch die
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 ---pagebreak--- COMMISSION OF THE EUROPEAN COMMUNITIES
                                                     COM ( 88 ) 71 final
                                                    Brussels ,     1 March 1988
                              PROPOSAL FOR
    A COUNCIL DIRECTIVE ON THE PREVENTION OF AIR POLLUTION FROM
               NEW MUNICIPAL WASTE INCINERATION PLANTS
                                 PROPOSAL FOR
   A COUNCIL DIRECTIVE ON THE REDUCTION OF AIR POLLUTION FROM EXISTING
                   MUNICIPAL WASTE INCINERATION PLANTS
                       ( submitted by the Commission )
                                         Æ
 ---pagebreak---                                                                                      1
                                EXPLANATORY MEMORANDUM
1.   Municipal waste incineration in the Community
   1.1 .  The most recent estimates put the volume of municipal waste
          generated in the Community at 110 million tonnes per annum .         This
          municipal waste comprises domestic , office and trade refuse , and
          waste from undertakings that is equivalent in composition to
          domestic waste .
   1.2 .  Controlled tipping is currently the most widely used disposal
          method in the Community as a whole and in each Member State .
          Thus almost 75% of the annual volume of municipal waste is
          disposed of in land fills while the remaining 25% is incinerated .
          However , the specific situation of certain Member States deviates
          considerably from this mean .        Portugal and Ireland , for instance ,
          do not incinerate waste and Greece has only one small-scale
          incineration plant ,         while over 30% of municipal waste is
           incinerated in Germany and the Netherlands and almost 40% in
           France .
    1.3 .  The composition of the waste incinerated varies greatly :
           - from one country to another
           - from one site to another in a given country
           - for a given incinerator over a period of time ( seasonal and
             temporary variations ).
           By way of a guide , the average composition of domestic waste for
           the Community as a whole can be taken to be as follows :
               paper / board / wood                               30%
               plastics                                            5%
               metals                                              5%
               putrescible matter                                 35%
                inert / fine-grained / miscellaneous materials    25%
 ---pagebreak---                                     - 2 -
1.4 . There are about 525 waste incineration plants in the Community ,
      38% of which have a nominal capacity greater than 6 tonnes / hour ,
      51 X between 1 and 6 tonnes / hour and 1 1 X less than 1 tonne / hour .
      In the case of France , however , small and medium-scale plants
      account for 83% of the total installed capacity , while 89% of the
      plant in Germany and 100% of the plant in the Netherlands has a
      capacity greater than 6 tonnes / hour .
1.5 . Of the municipal waste incinerated in the Community , 88% is burnt
      in incinerators with a nominal capacity greater than 6
      tonnes / hour , while only 1% of the total is incinerated in small
      plants ( capacity lower than 1 tonne / hour ).      However , there are
      considerable differences in this respect , too , between Member
      States .
1.6 . With regard to treatment of the combustion gases :
      - 7% of the incinerators currently in operation in the Community
          are equipped both with electrostatic precipitators and gas
          scrubbing equipment ;
       - 36% of the incinerators are equipped only with electrostatic
          precipitators ;
       - 35% are equipped with mechanical dust separation equipment
          ( cyclones , multicyclones );
       - 22%    of    the  incinerators   have   no  equipment   for    treating
          combustion gases .
 ---pagebreak---                                           - 3 -
2.     Legislation on municipal waste incineration in the Community , from the
       point of view of prevention of air pollution
   2.1 .    Several Community instruments of a general nature are applicable
            to waste incineration , more particularly to the prevention of air
            pollution from municipal waste incineration plants .           Council
            Directive 75 / 442 / EEC of 15 July 1975 on waste ( OJ No L 194,
            25.7.1975 , p. 9 ) provides for waste to be disposed of without
            endangering human health or the environment .       To this end , the
            Directive provides that any installation or undertaking treating
            waste must obtain from the competent authority a permit
            concerning , among other things , precautions to be taken .
            Council Directive 84 / 360/ EEC of 28 June 1984 on the combating of
            air pollution from industrial plants ( OJ No L 188 , 18.7.1984, p.
            20 ) makes the operation of new industrial installations and in
            particular    waste      incineration   plants   subject    to   prior
            authorization , and provides that this authorization may be issued
            only if all appropriate preventive measures against air pollution
            have been taken , including the application of the best available
            technology not entailing excessive costs .
            In addition , the Directive provides that Member States shall
            implement policies and strategies , including appropriate measures ,
            for the gradual adaptation of existing plants to the best
            available technology .       These provisions apply in particular to
            existing municipal waste incineration plants .
             Finally , Council Directive 85 / 337 / EEC of 27 June 1985 on the
            assessment of the effects of certain public and private projects
            on the environment ( OJ No L 175 , 5.7.1985 , p. 40 ) provides that
             installations for the disposal of domestic waste shall be made
             subject to an impact assessment where Member States consider that
             their characteristics so require .
    t ? 2 . In the general context of national provisions on environmental
             protection and , more particularly, the prevention or reduction of
             air pollution and waste management , the incineration of waste is
             subject in all Member States to conditions designed to limit the
             impact on health and the environment .
 ---pagebreak---                                        4
      However ,    only five Member States have adopted specific detailed
      provisions designed to prevent air pollution from municipal waste
      incinerators .      Furthermore , these provisions differ widely from
      country to country , from the the point of view both of their legal
      form and of their content .
2.3 . This section summarizes the specific provisions in force in some
      Member States regarding municipal waste incinerators , highlighting
      the aspects relevant to the prevention of air pollution .
      FRANCE
      Decree    of  9   June  1986 of   the Minister  of the Environment  on
      municipal waste incineration plants .
      This decree applies to all new plants and to plants for which
      extension work is authorized after the date of publication in the
      decree .
      It sets out     :
      - the details of the impact study required for these plants ;
      - the characteristics of and the management procedure applicable
         to the waste accepted ;
      - the following combustion conditions :
         . 750°C in the combustion or secondary combustion chamber
         . 7% oxygen content in the gases during the residence time at
           the stipulated temperature
         . minimum residence time of two seconds under the conditions
           defined above
         . limit value of 100 mg/Nm^ for CO concentration in the
           combustion gases ;
       - the criteria for calculating stack height ;
       - the characteristics of the measurement equipment ;
       - provisions on noise émissions ,       residues and liquid effluents
         from the plant ;
       - the following emission limit values :
 ---pagebreak--- I Pollutant                     I  6 t /h      I 1-6 t / h I 1     t /h     I
I dust                          I  50 mg / Nm  1 150 mg / Nm 1 600 mg / Nm  |
I HCl                           I 100 mg / Nm^ I 250 mg / Nm^ I      -      I
I HC                            I  10 ppm      I 10 ppm       I 30 ppm      I
I Cu,Pb,Zn,Ni , Cr,Sn,Ag,Co,Ba  I   5 mg/Nm^   I 6 mg / Nm-5 I       -      I
| Hg + Cd                       I 0,3 mg/Nm^   I              I      -      I
I As                            I   1 mg/Nm^   I     *        I      -      I
I                               I                             I             I
- provisions regarding down-time of purification equipment .
FEDERAL REPUBLIC OF GERMANY
The      first  General  Administration    Regulation     implementing     the
Federal Law on the protection of air quality ( Technical
Instructions for Maintaining Air Purity - TA-Luft ) was adopted by
the Federal Government on 28 February 1986 .
It applies to new plants and to existing plants that undergo
modifications . It sets time limits for the adaptation of existing
plants .
 This sets out :
 - the management procedure for the waste accepted ;
 - auxiliary combustion systems ;
 - the following combustion conditions :
    . a minimum temperature of 800°C must be obtained in the
        secondary combustion chamber during an adequate residence time
    . a minimum oxygen content of 6% must be assured under the
        conditions defined above
     . a maximum concentration of 100 mg/Nm^ for CO and 20 mg for
        organic compounds expressed as total carbon must be respected ;
  - the following emission limit values :
     . dust                                      30 mg/Nm^
     . Cd + Hg                                 0,2 mg/Nm^
      . As + Co + Ni                              1 mg/Nm^
 ---pagebreak---                               - 6 -
   . Sn ♦ Pb ♦ Cr ♦ Cu ♦ Mn ♦ Zn                  5 mg / Nm
   . HCt                                         50  mg // Nm
                                                 50 mg     Nm^
   . HF                                           22 mg
                                                     mg // Nm^
                                                           Nm
• stipulation* concerning the measurements to be carried out .
DENWARK
Environment Protection Agency Guide No 3 / 1986 on the control of
pollution from waste incinerators .
The provisions of the Guide apply to new plants and to existing
plants that undergo modifications .
These provisions set out      :
- the      characteristics of   the   waste     to    be      treated and the
   procedures for waste management at the plant ;
- the following combustion conditions :
    . 875°C in the secondary combustion chamber
    . an oxygen content between 6X and 12%
    . a residence time of 2 seconds under the above condistions .
    . a maximum CO concentration of 100 mg /Nm^ (daily mean )
    . use of auxiliary burners ;
 - the following emission limit values :
    . dust                        40 mg / Nin ( monthly mean )
    .  HCl                      100  mg /Nra^ (monthly mean
     . Cd                       0/ 1 mg/Nm^   (monthly mean )
    .  Pb                       1 /4 mg/Nm^   ( annual mean )
     . Hg                       0,1  mg/Nm^   ( annual mean )
     . HF                          2 mg /Nm^  ( annual mean )
     . S0?£                     300 mg/Nm^3 (annual mean)
     . organic compounds          20 mg / Nm  ( annual mean )
 - monitoring and measurement trials ;
 - operational requirements .
 ---pagebreak---  ÏTAUT
 At national level ,    an International Decree of 20 November 1985
istipulates in particylar the use of a secondary combustion chamber
 capable of raising the temperature of the combustion gases to
 950°C for 2 seconds in the presence of at least 6% oxygen, with a
 mean flow rate of the gases at the inlet of at least 10 m / s and a
 minimum Reynolds No of 60 000 .
 The construction of incinerators with a nominal capacity . lower
 than 100 tonnes / day is discouraged . ‘ The modification of existing
 plants is also planned .
 In addition , certain aspects of the laws on the prevention of air
 pollution and on waste management also apply to incinerators .
 NETHERLANDS
 The Dutch Ministry of the Environment issued " Guidelines " on waste
  incineration on 1 February 1985 ,       addressed to the competent
  authorities for permits and regional plants .
 With regard to the prevention of air pollution , these Guidelines
  set out , among other things :
  - the combustion conditions :      gas temperature of 800°C for at
    least two seconds in the presence of at least 6% oxygen ;
  - the following emission limit values ( 0°C, 101,3 kPa , 11% Og)
                           24 hour mean         maximum limit
     . dust                     50                   75
     . HCl                      50                   75
     . HF                        3                    5
     . Pb + Zn                   5                    3
     . Cd                      0,1
     . Hg                      0,1
  - provisions on the measurements to be carried out .
 ---pagebreak---                                         - 8 -
3.   Emissions into the air from waste incinerators in the Community
   3.1 . The nature and quantities of pollutants emitted by incinerators
         generally    depend   both   on   the characteristics  of  the  waste
         incinerated and those of the plant ,     including the combustion-gas
         treatment equipment .
         In the case of the smaller plants which , in most cases , are
         equipped with only rudimentary dust separation equipment , it is
         the composition of the waste incinerated which is most important
         from the point of view of pollutant emissions ; by contrast , in the
         case of certain large plants equipped with filters and gas
         scrubbing equipment , the efficiency of this equipment determines
         the characteristics of the emissions .
         The most important pollutants from the point of view both of
         quantity and toxicity which occur in emissions from incinerators
         are   :
          . dust
          . heavy metals ( Pb , Cd , Hg ,...)
          . chlorine
          . fluorine
          All of these pollutants are directly linked to the composition of
          certain materials incinerated .
          In addition ,      traces of polychlorinated aromatic compounds
          ( dioxins ) can be found in incinerator emissions which may be
          produced from certain precursors during combustion by mechanisms
          that are as yet not sufficiently understood .
          The following table gives , as a guide , the typical concentration
          of the main pollutants in the combustion gas of municipal waste
          incinerators .    It contains data derived from measurement results
          taken from the specialist literature
 ---pagebreak---                                                                                      (mg /Nm^)
1           1 Before                I       Cyclones         I Electrostatic      lElectro- lElectro* |
1           1 treatment             I                        jprecipitators       I static       I static       |
f Pollutant |                       I                                             I preci pi ta- 1 preci pi ta- 1
        A
1           1                       I                                             | tors +       | tors + dry |
1           1                       I                                             Iscrubbing ( treatment |
 1          1 min    I max   | mean I   min  I max    I mean I min   I max I mean I mean          | mean        |
 | Dust     11500    1 8000  13000   I  300  1 2000   I 500 I 50     I 150 I 100 I           50 I          50 I
 1 HCl       I 400   1 2200  11150   I  400  1 2200   11150 I 400    1 2200 11150 I          50 I          50 I
  IMF        I     5 I 20    I    9       5   I 20     I   9  I    5  I 20 I    9 111                       11
■*
  150 X      I 200   1 2000   I 500  I  200   1 2000   I 500 I 200 1 2000 I 500    1       100 I         250 I
  INO        I 150   I 650    I 250  I  150   I 650    I 250 I 150 I 650 I 250     I        150 I         150 I
  1 Pb       I     6  I 55    I 30   I    2   I 13     I   9 I 0.1 I      6 I   3  I         1.0 I         0.2 I
  lCd        I 0.3    I 3.6   I 1.8   I       I        I 0.3 I 0.011 0.7 I 0.2     I         0.04 1        0.02 1
   1 Hg      I 0.1 I 1.1 I 0.5        I 0.1   I 1.1    I 0.5 1 0.1 I 1.1 I 0.5     I         0.3 I         0.05 1
                                                                       N
             3.2 .   An estimate has been made by the Commission of emissions of
                     various pollutants from municipal waste incinerators in the
                     Community .     Account was taken in this calculation of the quantity
                     of waste incinerated , the operating characteristics of the plant
                     and the performance data of the effluent gas purification
                     equipment for various categories of the plants in service .                   This
                      produced the following data :
                       For the Community as a whole
                       Dust                         28 Ktonnes / year
                      Pb                           570 tonnes / year
                       Cd                           31 tonnes / year
                      Hg       '                    68 tonnes/year
                      HCl                          144 Ktonnes / year
                      HF .                        1150 tonnes / year
                       These Missions originate mainly from the larger incinerators, as
                       can bo soon from the following table :
 ---pagebreak---                                          - 10 -
         For the Community as a whole
         I        Pollutant         I X of emissions by category of  nominal    !
         I                          I capacity                                  I
         I                          i 0 - 1 t /h    I 1 - 6 t/h I      6 t/h    I
         i    Dust                  I       7       I     37      I      56     I
         I Pb                       I       3        I    27      I      70      I
         I Cd                        I      4        I     23     I      73      I
         I Hg                        I      1        I     13     I      87      I
          I HCl                      I      1        I     14     I      85      I
          I HF                       I      1        I     14      I     86      !
4.   Reasons for and objectives of the Directive
   4.1 . An analysis of the current situation regarding municipal waste
         incineration shows that it is desirable to pursue the following
         objectives at Community level :
         a . In the case of new plants , it is necessary to specify the
                conditions that are to be applied under Directive 360 / 84 in
                respect of technologies for the prevention of emissions .     This
               objectives can be attained in particular with the aid of the
                provisions of Article 8 of the above-mentioned Directive , which
                provides in certain cases for the stipulation by the Council of
                emission limit values . This will make it possible to harmonize
                the minimum level of protection applied in the Community .
           b . In the case of existing installations , it is necessary to
                establish a framework and time limits for the adaptation of
                waste incineration plants stipulated by Article 13 of Directive
                360 / 84 . With the aid of this framework , conditions at a number
                of incinerators which no longer correspond to the state of the
                art can be improved with a period of ten years , including an
                interim stage five years after the entry into force of the
                Directive .
 ---pagebreak---                                   - 11
4.2 . Municipal waste incinerators are a potential source of significant
      air pollution ,    and are therefore subject to special controls in
      some Member States .
       The Council has included these installations in the category of
       industrial plants which require prior authorization and which must
      use the " best available technology" to prevent air pollution .
       It is also provided that these plants be subject to an impact
      assessment pursuant to Directive 85 / 337 if the competent
       authorities consider that they may have a significant impact on
       the environment .
       The main pollutants from the point of view of potential effects on
       health and the environment are :
       - heavy metals , particularly Pb, Cr , Cu , Mn , Ni , Cd, Hg and As ,
         the toxicity and ecotoxicity of which are well known ;
       - chlorine and fluorine , which have acidifying properties ;
       - dioxins , on which more detailed information is supplied in
         section 4.3 .
4,3 .  While the problems in connection with the more " classic "
       pollutants ( heavy metals , chlorine , etc .) are well known and do
       not require specific comment , it is worth quoting from recent
       reflections by the World Health Organization concerning emissions
       of dioxins and furans from incinerators :
       "1 .  The level of PCDO and PCDF emissions from municipal solid
            waste incinerators varies widely ,    and factors causing these
            variations are not yet thoroughly understood .    Nevertheless ,
             tests show that modern,        well-run MSS ^ and MSW ^
             incinerators , generally show consistently lower emission
             levels of PCDD and PCDF than older or poorly maintained and
             poorly operated incinerators .
 Municipal sewage sludge
 Municipal solid waste
 ---pagebreak---                             - 12 -
2.  Available data suggest that high temperature ,         adequate
    retention time , high turbulence and excess oxygen , together
    reflecting good combustion conditions , are likely to result in
    low PCDD and PCDF emissions .
3.  The most toxic of the PCOD and PCDF compounds , 2,3,7,8-TCDD ,
    is only a minor component of the overall emissions of MSW
    and / or MSS incinerators .
4.  The limited data available today on the level of PCDD and PCDF
    emissions from MSS incinerators suggest that these levels are
    significantly lower than those for MSW incinerators .    Results
    from the testing of fluid-bed incinerators indicate PCDD and
    PCDF emissions at or below detection levels .
5.  Available data indicate that the application of appropriate
    acid gas control facilities is likely to reduce PCDD and PCDF
    emissions significantly, to below the lowest levels considered
    in the present analysis .
6.  The inhalation of emissions from well-operated MSS and / or MSW
     incinerators appears to contribute only a small fraction to
    the apparent overall daily intake of PCDD and PCDF , even for
    people living where the emission levels are highest .
7.   The contribution of such incinerators ,       through indirect
     exposure routes such as the food chain , to the overall human
     exposure from PCDD and PCDF cannot now be determined , although
     it appears that in certain situations a significant
     contribution could be made through these routes .
 8.  The relationship between the levels of PCDD and PCDF detected
     in environmental and human specimens and the many potentially
     contributive environmental sources    is not   well understood .
     Some data indicate the presence of PCDD and PCDF in certain
     geographical areas in both biotic and abiotic specimens . Yet
 ---pagebreak---                              - 13 -
     significant differences exist between their profiles as
     detected in the environment ( in soil and sediments ) and
     observed in living organisms .
9.   The available limited data on the relatively uniform levels of
     PCDD and PCOF in human adipose tissue suggest the presence of
     a background influence .
10 . No data have been published on the human health effects of
     PCDD   and  PCDF  emissions  from   MSS  and / or MSW  incinerators .
     Also unknown is the degree of human exposure from such
     emissions .     Yet , based on information related to workers'
     exposure to very high concentrations , it can be deduced that
     the severity of emissions from incinerators remains below that
   - concentration ".
The WHO has formulated the following recommendations :
"1 .   Appropriate incineration technology should be selected with
     due regard to the area of origin , quantity and quality of the
     waste .
2.   A better , more comprehensive scientific data base should be
     developed to refine criteria for the selection of operating
      conditions of incinerators , more adequately to control PCDD
      and PCDF emissions .
3.    The evaluation of PCDD and PCDF emissions should be based on a
      series of measurements of emission levels from incinerators
      and the recording of corresponding operating conditions .
4.    Additional    studies  should   be   done    to  validate  sampling
      techniques and analytical methods for the measurement of PCDD
      and PCDF emissions from incinerators .
 ---pagebreak---                               - 14 -
5.    The installation of afterburners should be considered if the
      nature or composition of a waste or the operation of an
      incinerator indicates that there may be problems in
      maintaining adequate temperatures and other operating
      conditions .
6.    The construction of small incinerators should be discouraged
      when adequate and properly trained personnel cannot be
      provided on a cost-effective basis .
7.    When sewage sludge incineration is being considered , the
      physical and chemical characteristics that differentiate MSS
      from MSW should be recognised and considered .
8.    Sewage sludge should be properly prepared before incineration
      to ensure its proper combustion ,         alone or combined with
      municipal solid waste .
9.    Additional monitoring should be conducted to determine the
       range of human body burdens of PCDD and PCDF in the general
      population .
10 . Studies    should   be   carried  out   to  evaluate   the   relative
       importance of incinerators as sources of PCDO and PCDF in the
       human body .
11 . Surveys should be attempted to identify any group with
       potentially high exposure to PCDD and PCDF from incinerators
       to enable the evaluation of possible effects on health .
 12 . Additional studies should be performed to clarify better the
       environmental pathways and impact on health of PCDD and PCDF
       from incinerators .
 13 . The   effects   of    incinerators   on   health   and    the  local
       environment should be evaluated on a case -by-case basis .
 ---pagebreak---                                   - 15 -
      14 . Because of the very limited data on human body burdens of PCDO
           and PCDF from MSS and / or MSW incinerators and other sources ,
           the uncertainties inherent in the concept of the toxic
           equivalency of different PCDO and PCDF isomers and honologues
           and the wide range of calculated emissions ,    the evaluation of
           human exposure   should be reviewed as more       information and
           clearer understanding develop".
4.4 . The available technologies enabling substantial reductions to be
      made in pollutant emissions from municipal waste incinerators
      include :
      - for dust and heavy metals . contained in the particles :
         electrostatic precipitators , fabric filters ;
         for Hg , HCL and HF : gas scrubbing ( wet or dry );
      * for polychlorinated organic micropollutants : monitoring of
         combustion conditions and , if necessary , use of a secondary
         combustion chamber .   Scrubbing and dust separation systems alos
         have a positive effect in reducing these emissions .
      The costs of these technologies depend on the separation
      efficiency required and the specific conditions encountered at a
      given plant .
      While the retrofitting of existing plants may not involve any
      major technical problems , the economic aspect may be particularly
      crucial in the case of incinerators which have a particularly
      short remaining useful life or which have to operate under special
      conditions .
      With regard to investment , the size of the plant influences the
       return on capital employed for emission control , particularly in
       the case of gas scrubbing equipment .
       An assessment of the costs associated with the Directive is given
       in the section discussing the Articles .
 ---pagebreak---                                              16 -
5,     Presentation of the Articles and assessment of the costs
   • •     f
   5,1 .     New plants
         «
             ARTICLE 1
             This Article contains the definitions necessary for interpretation
             of the instrument .   Some of the definitions are derived from other
             texts adopted by the Council and thus do not require explanation .
             The type of waste covered by the Directive is defined as being
             exclusively waste which , by its composition , can be considered to
             be equivalent to domestic waste to the exclusion of chemical ,
             toxic and special waste and sewage sludge .
             Plants principally used for the incineration of other fuels are
             also excluded .
             However ,    the Directive applies to furnaces which mainly burn
             refuse-derived fuel .
             ARTICLE 2
             This Article provides that the prior authorization required for
             the operation of all new incinerators under Directive 75 / 445 / EEC
              ( waste management ) and 84 / 360 / EEC ( air pollution from industrial
              plants ) impose the detailed conditions laid down in this
              Directive .
              Moreover Article 2 reminds that Directive 84 / 360 / EEC provides that
              all the necessary measures to prevent air pollution must be taken
              in the case of new plants .       This implies that , if the emission
              limit values laid down by the Directive prove insufficient in a
              particular    situation  to prevent        significant  levels  of  air
              pollution , additional measures must be taken .
 ---pagebreak---                              - 17 -
ARTICLE 3
This Article specifies the emission limit values applicable to new
incinerators . These  limits   are expressed   as a  concentration of
mg/m^ and are standardized at a specific pressure and temperature,
at 11% C>2 (or 9% CO^, which is equivalent ) and dry gas .
The limit values for dust are differentiated according to the size
of the plant in order to avoid unprofitable over-investment in
small incinerators in terms of the separation costs per tonne of
pollutant .    The use of an electrostatic precipitator is necessary
in all cases .    However , the required efficiency of this equipment
( and hence its cost ) is linked to the plant size .
The limit values stipulated for heavy metals are differentiated
according to the risk they present to health and the environment .
Very tight control must be exercised regarding Cd , Hg and , to a
 lesser extent , Ni and As .     A global limit value of 5 mg has been
 laid down for the other heavy metals ( the list has been restricted
to those that are most significant from the point of view of their
presence in emissions and the risk they involve ).
 These concentrations can generally be observed by means of an
 appropriate degree of separation using electrostatic precipitators
 and , in the case , of Hg , adequate purification ( wet or dry
 scrubbing ) of the gases .
 With regard to HCl and HF , it is appropriate to make a distinction
 on the basis of plant size for the same reasons as stated in
 connection with dust .
 There are various techniques of differing degrees of efficiency
 and cost available for purification of combustion gases .       It is
 therefore necessary to allow sufficient flexibility in order to
 optimize the overall effectiveness of the investment made .
 The limit fixed for sulphur dioxide can always be observed , even
 with rudimentary purification of the combustion gases .
 The emission limit values fixed do not cover all the pollutants
  liable to constitute a risk to health and the environment .       The
 authorities    must   therfore    specify   limit  values  for   other
 pollutants in the light of the specific requirements in individual
  cases
 ---pagebreak---                               18 -
ARTICLE 4
Good combustion conditions are necessary both from the point of
view of hygiene and from the point of view of the prevention of
emissions of polychlorinated organic compounds .         The organic
substances must be completely broken down and oxidized .
Temperature , residence , time of the gases at this temperature and
oxygen content are the parameters determining combustion quality .
In addition , the concentration of CO and total carbon in the
residues serve as indicators to verify the results .    It should be
noted that all of these factors combine to guarantee combustion
quality .
The proposed limit values represent , as a whole , a high level of
prevention of PCDD and PCDF emissions .        Nevertheless , it is
appropriate    to make allowance        for the possibility that
technological progress will provide other means of preventing the
emissions in question than those laid down in the Directive for
traditional incineration plants .
For this reason Article 4(3 ) permits derogations for innovative
techniques used in the incineration furnaces or the gas treatment
equipment .
ARTICLE 5
This Article defines the proprer interpretation of the limit
values and other parameters laid down in the Directive .
With regard to the concentrations that are measured continuously ,
 it introduces a degree of flexibility designed to make allowance
 for fluctuations due to the operating conditions of the plant
 while still guaranteeing that certain maximum limits are observed .
 ARTICLE 6
 This  Article   stipulates  the   measurements to  be made   at  new
 incineration plants .
 ---pagebreak---                             - 19 -
Total dust , HCl , CO and oxygen must be continuously measured .
Appropriate measurement techniques are already well established
and widely used Tor. these substances .     By contrast , continous
measurement is not conceivable in the case of heavy metals , and it
is not essential in the case of HF, S02 and organic compounds . As
a result ,   period measurements are stipulated in these cases . The
competent authorities are responsible for laying down the
measurement programmes on the basis of the conditions specific to
each plant . It does not appear necessary or reasonable to specify
the measurements in greater detail in this Directive .
The Article also contains provisions on measuring temperature and
water vapour .       These parameters are crucial for monitoring
compliance with the stipulated obligations .           In addition ,
observance of the stipulated residence time must be verified , at
the least when authorization is granted , in particular by means of
a suitable examination of the characteristics of the plant .
ARTICLE 7
 All incineration plants must be equipped with auxiliary burners to
 ensure appropriate temperature under alt operating conditions ,
 including the start-up and shut-down phase .
 However , systematic use of these burners must be avoided .
 Otherwise , it would mean that the characteristics of the waste
 and / or the operating conditions did not meet the requirements of
 good combustion conditions .
 ARTICLE 8
 Article 8(1 ) lays down the procedure to be followed in order to
 restore appropriate operating conditions in the event of the limit
 values being exceeded .
 Article 8(2 ) defines the constraints on operation of the plant
 during breakdowns or stoppages of the purification devices .
 ---pagebreak---                                20 -
 ARTICLE 9
 The public must be given access to information regarding the
 obligations applying to the plants and the results of
 measurements .
  This is primarily intended to make the incinerator operators more
 directly responsive to public concerns .    Secondly , it is designed
 to create transport conditions which will make it easier for the
  public to accept this type of waste treatment .
  ARTICLE 10
  This Article permits exemptions from some of the provisions of the
  Directive for very small plants used for waste disposal ,
  particularly in tourist areas , where the volume of waste generated
  is subject to very considerable seasonable variations .      In some
  cases there is no other possible means of disposal .       The costs
  involved in fitting these small plants ,          which have a low
  utilization rate over the year , with the treatment equipment
  necessary to comply with the conditions laid down in the Directive
  would be excessive .    By contrast , the 350 mg / in limit for dust
  can be observed with the aid of simple dust separation equipment .
  ARTICLE 11
  Article 11(1 ) provides that the authorities make the necessary
• checks to verify observance of the conditions relating to
   incineration plants laid down by the Directive .
   Article 11(2 ) provides for adaptation of the plant to technical
   progress not involving excessive and unreasonable cost .
 ---pagebreak---                                    - 21
      ARTICLE 12
      It is established that large installations must be subjected to an
      environmental impact assessment in accordance with the provisions
      of Directive 85 / 337 .  The latter Directive leaves it to the Member
      States   to determine    when the  characteristics of  an incinerator
      require such an assessment to be carried out .
      The threshold for this obligation is now set atj 5 t / h ,      which
      corresponds to 120 t / d for a plant operating in three shifts , i.e.
      to a plant serving a community of between 100 000 and 150 000
      inhabitants .
      It therefore concerns a very large . plant capable of having a
      significant impact on the environment ,          even if the other
      provisions of the Directive concerning the prevention of air
      pollution are respected .
      This obligation will result in diverse aspects of environmental
      protection being integrated in the authorization procedure ( water ,
      soil ,    air ,   noise , landscape , odours , problems related to
      transport ,      storage and pretreatment of the wastes to be
       incinerated , combustion residues , etc .).
       It is only by means of such an assessment procedure that detailed
       standards on emissions into the air can be incorporated into a
      comprehensive , preventive , multimedia approach .
       ARTICLE 13
       In the light of the nature and objective of the provisions of this
       Directive ,    Member States may adopt more stringent measures that
       are in conformity with the Treaty for environmental protection
       reasons .
3.2 ,  Existing plant
 ---pagebreak---                             - 22 -
ARTICLE 1
See comments on Article 1 of the Directive on new plant .
ARTICLE 2
In the framework of the objectives defined in Article 13 of
Directive 84 / 360 , provision has been made for the retrofitting of
existing incineration plants in two stages :
- by 30 June 1994 at the latest , all plants authorized before 30
   June 1989 must comply with the minimum conditions laid down in
   Articles 3-9 of the Directive ;
- by 30 June 1999 at the latest , all of the incineration plants
   referred to above must comply with all the conditions applying
   to "new " incineration plants .
This means that the less efficient plants have been granted a
" period of grade " of five years .  After this deadline ,  the plant
will either have to be retrofitted or decommissioned .     The choice
will be made in the light of the remaining useful life of the
plant and of other technical and economic parameters .
Plants which have a remaining lifespan such that they could
continue to be operated after 30 June 1989 ( if justified by the
technical and economic conditions ) must be retrofitted during the
first stage in order to observe all the conditions applying to new
plants .
The provisions of this Directive are therefore of a nature suited
to concentrate and rationalize at Community level the process of
 cleaning up the stock of existing incineration plants .
 ARTICLE 3
 This Article lays down the emission limit values for total dust
 applying to plants of different capacity .
 The staggered values take account of the requirement to avoid
 entailing excessive costs and major technical problems .
 ---pagebreak---                                    - 23 -
      The use of an electrostatic precipitator is required for plants
      whose nominal capacity is greater than or equal to one tonne per
      hour .   In the case of smaller plants , multicyclones will suffice
      to observe the stipulated limit .
      ARTICLE 4
      See comments  on Article 4 of the Directive on new plants .
      By contrast    to the provisions for new plants , there are no
      restrictions    concerning emissions of total carbon in order to
      avoid unduly  complicating the monitoring procedures .
      ARTICLES 5 and 6
      See remarks on Articles 5 and 6 of the Directive on new plants .
      The requirements regarding measurements to be carried out and
      interpretation of the results are simpler than those for new
      plants .
      ARTICLES 7 , 8 , 9 , 10 and 11
      See remarks on the Articles on the corresponding subjects in the
      Directive on new incineration plants .
5.3 . Assessment of the costs in connection with implementation of the
      proposed Directive
      It is not possible to make • detailed and exhaustive assessment of
      the costs involved in implementing the proposed Directives owing
      to the many uncertainties regarding developments in this sector ,
      which would mean that any estimate would have to be based on
      arbitrary and unsubstantial hypotheses .
      However , it is possible , as a guide , to provide information
      concerning the basic economic data of the incinerators and the
      emission abatement equipment required       in order   to meet   the
      obligations imposed by the Directive .
 ---pagebreak---                             24 -
This data is summarized in the following graphs and tables , taken
from a report prepared for the Commission .
 ---pagebreak--- Investments costs for medium and large size solid
municipal waste incinerators.
              Millions ECU
                      120 1–
                                                                                       108
                      100 –
                        80 -                                          ?2
                        60 –
                                                     52
                        40 -           34
                        20 –-       ri
                         0 1_I_I_I_I_l__I_I_J_
                                      15 t/h        31 t/h          46 t/h            76 t/h
                                                       Capacity (t/h)
                  ECUS/tons
                      360 |-
                                        340
                     320 –
                      280 -
                                                       260
                      240 –
                                                                                             216
                      200 ________I                                                                I-
                                         100            200              300                 500
                                                    Capacity x lOOOt/year
                                                                     Electrostatic filters : 4,7 %
            System
            System ((2)
                     2)       Ecu/ton
                              ЕсцЛоп
                                                                           (( 10
                                                                              10ECUS/ton)
                                                                                 ECUSAon)
            Dry               40
            Semi-dry
            Semi-dry          50                  /                    /
           Wet                42                /                     /               \           HCI removal
                                                                                                  HCI removal
          -,-I /                                                     /                  \ ""semi-dry                %
                                                                                             semi-dry System " : 18 H
                                             /                     /                      \\     (40 ECUS/ton)
   (( 11 )) 500
            500 000
                000 tons/year
                     tons/year incinerator
                               incinerator    \                                          /
    (2) Including particle removal             \                                       /
                                                   TOTAL : 216 ECUS/ton ( 1 )
 ---pagebreak--- Operating costs for medium and large size solid
municipal waste incinerators
      Millions ECUS/year
                I                                              ^
            10 –
              8 –                                 7,6
              6-                  5,3
              4 -
                           3,2
              2 –
              0 - - - - - -–I- - -
                          15 t/h 31 t/h          46 t/h           76t/h
                                                                  76 t/h
                                     Capacity (t/h)
        ECUS/ton
             35 |–       ι–
                            33
             30 –
                                   27,6
                                 - -                 25.5
             25                                                       23,0
             20 –
             15 –
             10 –
              5 –
              0 I_I_I_I_I_I_I_I_I_
                            100     200              300               500
                                  Capacity x 1000t/year
                                                 Electrostatic filter : 9.5 %
                                                       (2.2 ECU5/ton)
                                                                                     HCI removal
                                                                              " semi-dry System " : 23 %
                                                                                   (5,4 ECUS/ton )
                                   TOTAL : 23 ECUS/ton
 ---pagebreak--- j THOUSAND ECU 1986                  WET SYSTEM        SEMI-DRY SYSTEM DRY SYSTEM
i . Total investment                     21 600             24 800       17310 .
> . Operating cost
                                            265                221          221
!     Manpower
I                           ––
                                          1 381              1 009          265
i     Energy
      Raw materials                         274                734          850
      Maintenance                         1 080              1 239          867
i     Particles treatment                   858                664          655
                                          1 717              2 044        1 292
;     Depreciation
                Total                     5 575              5911         4 150
   . Investment/ton ( 1 )                    43.2               49.6         34.6
 . . Operating cost/ton                      11.1               11,8          8.3
(*) Source : TIRU, France : 3 x 28 t/h , 500 000 tons of SWM /year
( 1 ) Including buildings for air pollution abatement techniques
 ---pagebreak--- Investment cost for small size solid municipal waste
incinerators
                                                                  8,7 M ECUS
                                            6.2 M ECUS
                       5,8 M ECUS
                                                                                          Particule +
                                                                                          HCl removal
                                                     1,3               1,3
                            0,87             ■ ■ · ; ·.       -
                        '·   ' .!
                            4 t/ h                4 t/hC )
             (*) The oven is equipped with pollution abatement techniques eqivalent to those of a 6 t/h oven
     Total 20 ECUS/t                           Total 22 ECUSA                      Total 17,4 ECUS/t
                                                         –            %
             4 t/h                                       4 t/ h *                        6 t/ h
       ^3 Pollution abatement operating cost
       (•) The oven is equipped with pollution abatement techniques equivalent to those of a 6 t/h oven .
 ---pagebreak--- Operating cost for small size solid municipal waste
incinerators compared to waste collection costs.
                                    TOTAL : 40 ECUS/ton
        Other operating
        Other    operating costs
                             costs/                      \
                   35%
                   35 %    .     //                       \
              ( 13.9
                13,9 ECUS/t)     /                         \
                                                             Waste collection
                                                               54 %
                                                             ( 21,7 ECUS/t)
      Pollution abatement
      Pollution   abatement          ^-
        operating costs
                11 %
           (4,4 ECUS/t)
                                      6 t/h incinerators
 ---pagebreak---                                     PROPOSAL FOR
       A COUNCIL DIRECTIVE ON THE PREVENTION OF AIR POLLUTION FROM
                      NEW MUNICIPAL WASTE INCINERATION PLANTS
THE COUNCIL OF THE EUROPEAN COMMUNITIES ,
Having regard to the Treaty establishing the European Economic Community ,
and in particular Article 130 S thereof ,
Having regard to the proposal from the Commission ,
Having regard to the opinion of the European Parliament ,
Having regard to the opinion of the Economic and Social Committee ,
                      12                 3           4
Whereas the 1973 , 1977 , 1983              and 1987   European Community action
programmes on the environment stress the importance of the prevention and
reduction of air pollution ;
   O.J. No C 1 1 2 , 20.12.1973 , p. 1 .
 2 O.J. No C139, 13.6.1977, p. 1 .
 3 O.J. No C46, 17.2.1983, p. 1 .
 4 O.J. No C328, 7.12.1987, p. 1 .
 ---pagebreak---                                           - 2 -
                                                                      i
I
  Whereas the Council Resolution of 19 October 1987 on the action programme
  on the environment for 1987 to 1992 states that it is important for
  Community action to concentrate ,          inter alia ,       on implementation of
  appropriate standards in order to ensure a high level of public health and
  environmental protection ;
  Whereas Council Directive 85 / 337 / EEC of 27 June 1985 on the assessment of
  the effects of certain public and private projects on the environment ^
  provides that an environmental impact assessment shall be carried out in
  the case of installations for the disposal of domestic waste where Member
  States consider that their characteristics so require ;
  Whereas Council Directive 75 /442/ EEC of 15 July 1975 on waste ^ provides
  that waste must be disposed of without endangering human health and
  without harming the environment ; whereas , to this end , the same Directive
  stipulates that any installation or undertaking treating waste must obtain
  a permit from the competent authority relating , inter alia , to the
  precautions to be taken ;
  Whereas Council Directive 84 / 360 / EEC of 28 June 1984 on the combating of
   air pollution from industrial plants ^ provides that prior authorization
   shall be required to operate new industrial installations and in
  particular waste incineration plants ; whereas this authorization may be
   issued only when all appropriate preventive measures against air pollution
   have been taken ,      including the application of the best available
   technology not entailing excessive costs ;
   Whereas   the  abovementioned     Directive   84 / 360 / EEC  stipulates  that the
   Council , acting unanimously on a proposal from the Commission , shall , if
   necessary, fix emission limit values based on the best available
     O.J. No L175 , 5.7.1985 , p . 40 .
      O.J. No L194 , 25.7.1975 , p . 39 .
      O.J. No L188 , 16.7.1984 , p. 20
 ---pagebreak---                                    - 3 -
technology not entailing excessive costs and suitable measurement
techniques and methods and whereas it is advisable to avoid that the limit
values fixed entail an excessive energy consumption ;
Whereas incineration of municipal waste gives rise to emissions of
substances which can cause air pollution and thereby harm public health
and the environment ; whereas in some cases this pollution may have
transboundary features ;
Whereas the techniques for reducing emissions of pollutants from municipal
waste incineration plants are well established ;      whereas they can be
applied reasonably economically in new incineration plants ;   whereas they
provide a mean of attaining concentrations of pollutants in the combustion
gases not exceeding certain limit values ;
Whereas all the Member States have laws , regulations and administrative
provisions concerning the combating of air pollution from stationary
plants ; ' whereas several Member States have specific provisions on
municipal waste incineration plants ;
Whereas the Community by fixing emission limit values and other pollution
prevention requirements helps increase the effectiveness of the action
taken by the Member States to combat air pollution from municipal waste
incineration plants ;
Whereas in order to ensure an effective protection of the environment an
assessment of the environmental impact of larger municipal waste
 incineration plants should be required and requirements and conditions
 should be laid down before authorization is granted for any new municipal
waste incineration plant ; whereas these requirements must include an
obligation to observe emission limit values for the most significant
 pollutants and appropriate combustion conditions ; whereas provision must
 be made for appropriate measurements and verifications at the incineration
 plants ; wheras the public must be informed of the conditions imposed and
 of the results obtained ,
 HAS ADOPTED THIS DIRECTIVE :
 ---pagebreak---                                        - 4 -
                                     Article 1
    For the purposes Qf this Directive :
1%  " Air pollution" means the introduction by man / directly or indirectly /
    of substances or energy into the air resulting in deleterious effects
    of such a nature as to endanger human health / harm living resources
    and ecosystems and material property and impair or interfere with
    amenities and other legitimate uses of the environment .
2.  " Emission    limit   value " means   the   concentration   and / or mass  of
    polluting substances which is not to be. exceeded in emissions from
    plants during a specified period .
3.  " Municipal waste " means domestic refuse / commercial and trade waste
    and other waste equivalent to domestic refuse .
4.  " Municipal waste incineration plant " means any technical equipment
    used for the treatment of municipal waste by incineration / with or
    without recovery of the combustion heat generated / but excluding :
    - combustion plants which are designed to use other fuels but which
        burn a fuel derived from municipal waste as a back-up ;
    - plants used specifically for the incineration of sewage sludge ,
        chemical , toxic and dangerous waste , hospital waste or other types
        of special waste , on land or at sea , even if these plants may burn
        municipal waste as well .
     This definition covers the          entire    installation   comprising  the
     incinerator ,    its waste ,  fuel and air supply systems and the devices
     and systems for checking incineration operations and continuously
     recording and monitoring incineration conditions .
 5.  " New plant " means a municipal waste incineration plant for which
     authorization to operate is granted as from the date specified in
     Article 14(1 ) of this Directive .
 ---pagebreak---                                         - 5 -
                                                                             Jy
6.    " Nominal capacity of the incineration plant " means the sum of the
      incineration capacities of the furnaces of which the plant is
      composed , as specified by the constructor , on the basis of :
      - the quantity of waste incinerated , the calorific value and other
         characteristics of the waste to be treated ;
      - the factors which determine the lifespan of the plant , namely the
         technical characteristics and its permissible rate of utilization .
                                      Article 2
Without prejudice      to the provisions of Article 4 of Council Directive
84 / 360 / EEC of 28    June 1984 on the combating of air pollution from
                      8
industrial plants       , Member States shall take the necessary measures to
ensure that the conditions laid down in this Directive shall be attached
to the prior authorization required to operate all new municipal waste
incineration plants under Article 3            of the above mentioned Council
Directive 84 / 360 / EEC and under Article 8 of Council Directive 75 / 442 / EEC
of 15 July 1975 on waste 9 .
                                      Article 3
       The following emission limit values , standardized at the following
       conditions : temperature 273 K , pressure 101.3 kPa , 11% oxygen or 9%
       CO2 and dry gas , shall apply to new municipal waste incineration
       plants :
       - Total dust
          . nominal capacity equal to or greater than
            5 tonnes per hour                                 50 mg /Nm^
          . nominal capacity less than 5 tonnes per hour     100 mg/Nm^
       - Heavy metals
          . Pb + Cr + Cu + Mn                                  5 mg/Nm^
    O.J. No L188 , 16.7.1984 , p . 20 .
 9 O.J. No L194, 25.7.1975, p . 39 .
 ---pagebreak---                                                                                зг
                                     - 6 -
      . Ni + As                                              1 mg / Nm
      . Cadmium ( Cd )                                     0.1
                                                           0.1 mg/Nm^
                                                                 mg / Nm
      . Mercury ( Hg )                                     0.1 mg
                                                           0.1   mg //Nm"*
                                                                      Nm
   - Hydrochloric acid ( HCl )
      . nominal capacity equal to or greater than
         5 tonnes per hour                                  50 mg/ Nm^
      . nominal capacity less than 5 tonnes per hour       100 mg/Nm^
   - Hydrofluoric acid ( HF )
       . nominal capacity equal to or greater than
         5 tonnes per hour                                     2 mg / Nm
       . nominal capacity less than 5 tonnes per hour         44 mg/Nm"*
                                                                 mg / Nm
   - Sulphur dioxide ( S02>                                300 mg/Nm^
2. Where appropriate , the competent authorities , taking due account of
   the composition of the wastes to be incinerated and of the
   characteristics of the incineration plant , shall lay down emission
    limits for pollutants other than those mentioned in paragraph 1 of
   this Article which could also give rise to significant emissions in
   the specific case under consideration .       For the purposes of laying
   down these emission limit values , the authorities shall take account
   of the potential harmful effects of the pollutants in question on
   human health and the environment and of the best technology available
   not entailing excessive costs .
                                   Article 4
1.  All new municipal waste incineration plants must be designed , equipped
    and operated in such a way that the gas resulting from the combustion
    of the waste is raised , after the last injection of combustion air , in
    a controlled and homogeneous fashion and even in the most unfavourable
    conditions , to a temperature of at least 850°C for at least 2 seconds
    in the presence of at least 6% oxygen .
2.  All new municipal waste incineration         plants shall         observe the
    following conditions when in operation :
    a.    the concentration of carbon monoxide ( CO ) in the combustion gases
          must not exceed 100 mg /Nm"*;
 ---pagebreak---                                     - 7 -
   b.   the concentration of organic compounds ( expressed as total carbon )
        in the combustion gases must not exceed 20 mg / Nm^.
   The limits stipulated in subparagraphs a and b of this paragraph shall
   be standardized at the following conditions : temperature 273 K ,
   pressure 101.3 kPa , 11% oxygen or 9% CO2 and dry gas .
3. Exemptions from the conditions laid down in paragraph 1 of this
   Article may be authorized if innovative techniques are used in the
   incineration furnaces or combustion-gas treatment equipment , provided
   that the competent authorities have satisfied themselves that , with
   the use of these techniques ,           the levels of polychlorinated
   dibenzodioxins ( PCOOs ) and of polychlorinated dibenzofurans ( PCDFs )
   emitted will be equivalent to those obtained with the technical
   conditions laid down in the first paragraph of this Article .
                                     Article 5
1. The temperatures and oxygen content laid down in Article 4(1 ) of this
   Directive are    minimum values   to be  observed at all times when the
   plant is in operation .
2.  The carbon monoxide ( CO ) concentration laid down in Article 4(2 ). a . of
   this Directive is the limit value for the daily average calculated by
   taking into account , where appropriate , only the hours in which the
   plant is actually in operation , including the start-up and shut-off
   periods .
3.  In the case of the other substances to be continuously monitored under
    Article 6 of this Directive :
    a«   none of the monthly averages of the concentration values measured
         for these substances must exceed the corresponding limit value ;
    b.   none of the daily averages of the concentration values measured
         for these substances must exceed the corresponding limit value by
         more than 30% .
 ---pagebreak---                                       - 8 -
                                                                              y
   For the purposes of calculating the abovementioned average values ,
   only the periods in which the plant is actually in operation shall be
   taken into account , including the start-up and shut-off periods .
4. In the case of substances to be measured periodically under Article 6
   of this Directive , the concentration values measured in accordance
   with the rules laid down by the competent authorities under Articles
   6(3 ), 6(4 ) and 6(5 ) must not exceed the limit value .
                                      Article 6
1. The following measurements shall         be taken at new municipal waste
   incineration plants :
   a.    concentrations of certain substances in the combustion gases :
         i.  concentrations of total dust , HCl ,      CO and oxygen shall be
             continuously measured and recorded ;
       ii .  concentrations of the heavy metals referred to in the second
             indent of Article 3(1 ) of this Directive , HF , SO^ and organic
             compounds    ( expressed  as  total  carbon ) shall  be measured
             periodically ;
   b.    operating parameters :
         i.  the temperatures of the gases in the area where the conditions
             imposed by Article 4(1 ) of this Directive are satisfied and
             the water vapour content of the combustion gases shall be
             continuously measured and recorded ;
        ii . the residence time of the combustion gases at the minimum
             temperature of 85Q°C specified in Article 4(1 ) of this
              Directive must be the subject of appropriate verifications at
              least once when the incineration plant is brought into service
              and the most unfavourable operating conditions envisaged .
 ---pagebreak---                                     - 9
2.   The results of the measurements referred to in paragraph 1 of this
     Article shall be standardized at the following conditions :
     temperature 273 K, pressure 101.3 kPa, 11% oxygen or 9% COj and dry
     gas .
3.   All the measurement results shall be recorded , processed and presented
     in an appropriate fashion sp that the competent authorities can verify
     compliance with the conditions laid down ,         in accordance with
     procedures to be decided upon by those authorities .
4.   The sampling and measurement procedures ,  methods and equipment   used
     to satisfy the obligations imposed by paragraph 1 of this Article and
     the location of the sampling or measurement points shall require the
     prior approval of the competent authorities .
5.   For the periodic measurements , the competent authorities shall lay
     down appropriate measurement programmes to ensure that the results are
     representative of the normal level of emissions of the substances
     concerned .
     The results obtained must be suitable for verifying that the limit
     values applicable have been observed .
6.    The Council acting by a qualified majority on a proposal from the
      Commission shall adopt the appropriate decisions concerning the steps
     to be taken to measure emissions of polychlorinated dibenzodioxins and
     of polychlorinated dibenzofurans from new municipal waste incineration
      plants and the reference methods to be used for measuring these
      substances as soon as the state of knowledge in this field will per'mit
      it .
                                   Article 7
 All new municipal waste incineration plants shall be equipped with
 auxiliary burners . These burners must be switched on automatically when
 the temperature of the combustion gases falls below 850°C .       They shall
 also be used during plant start-up and shut-down operations in order to
 ---pagebreak---                                      - 10 -
ensure that the abovementioned minimum temperature is maintained at all
times during these operations       and as    long as   the waste is  in the
combustion chamber .
However ,  if the total utilization time of these burners exceeds 5% of the
total plant    operation time    for seven     consecutive days , appropriate
measures must be taken to restore adequate combustion conditions .
                                   Article 8
1.  Should the measurements taken show that the limit values laid down in
    this Directive have been exceeded , the competent authority shall be
     informed as soon as possible . It shall lay down appropriate emergency
    measures to ensure that the abovementioned limits are again observed .
    Plants which do not comply with these provisions shall no longer be
    operated .
2.  The competent authorities shall lay down the maximum permissible
    period of any breakdowns or stoppages of the purification devices
    during which the concentrations in the discharges into the air of the
     substances which these devices are intended to reduce exceed the limit
     values laid down .    Under no circumstances may they exceed 16 hours
     uninterrupted operation ;    their cumulative duration over a year shall
     be less than 200 hours .
     The dust content of the discharges shall under no circumstances exceed
     600 mg/Nm^ during the periods referred to in the preceding paragraph,
     and all the other conditions , in particular the combustion conditions ,
     shall be complied with .
                                       Article 9
     Besides the publicity required by Article 9 of Council Directive
     84/360/EEC of 28 June 1984 10, the public shall have access, in
     accordance with appropriate procedures and in the form decided upon by
 10
    O.J. No L188 , 16.7.1984 , p. 20 .
 ---pagebreak---                                                                           40
                                        11
   the competent authorities , at sufficient intervals , to the results of
   measurements of pollutant emissions and measurements relating to the
   plant operating conditions .
                                      Article 10
   Exemptions from some of the conditions laid down in this Directive may
   be allowed when authorization to operate is granted to new
   incineration plants with a nominal capacity of less than 1 tonne of
   waste per hour used for the disposal of municipal waste streams
   characterized by very considerable seasonal variations , in particular
   in winter or summer tourist areas and where , because of the size of
   the plant and the way in which it is operated , these provisions cannot
   be complied with without entailing excessive costs .
   In such cases , the provisions of Article 4(1 ) and 4(2 ) of this
   Directive must be complied with and the following emission limit
   measured and interpreted in line with Article 5 and 6 of this
   Directive and standardized at the following conditions : temperature
   273 K, pressure 101.3 kPa , 11% oxygen or 9% CC^ and dry gas , shall
   apply :
   - total dust                                              350 mg / Nm^
                                      Article 11
1.  In the framework of the verification required by Article 11 of
    Directive 84 / 360 / EEC and also in relation to the provisions of Article
    4 of the same Directive , Member States shall take the necessary
    measures to ensure that compliance with the conditions relating to new
    incineration plants pursuant to this Directive is verified by the
    competent authorities .
2.  Provisions of this Directive are without prejudice to the requirement
    of Article 12 of Directive 84 / 360 / EEC for Member States to revise ,
    where necessary ,      the conditions imposed in the authorization granted
    to an incineration plant .
 ---pagebreak---                                   Artide 12
Annex I , point 9 of the Council Directive 85 / 337 / EEC of 27 June 1985 on
the assessment of the effects of certain public and private projects on
the environment the following phrase is modified by the addition of : " and
municipal waste incineration plants the nominal capacity at which exceeds
5 tons of waste per hour ".
                                  Article 13
Member States may adopt more stringent provisions than those of this
Directive ,    where necessary ,    in order to protect health and the
environment .
                                  Article 14
1.   Member States shall bring into force the laws ,          regulations and
     administrative provisions necessary to comply with this Directive not
     later than ( 30 June 1989 ). They shall forthwith inform the Commission
     thereof .
 2.  Member States shall communicate to the Commission the texts of the
     provisions of national law which they adopt in the field governed by
     this Directive .
                                   Article 15
 This Directive is addressed to the Member States .
 Done at Brussels ,
                                              For the Council
                                              The President
 ---pagebreak---                                                                              7<ô
                                   PROPOSAL FOR
    A COUNCIL DIRECTIVE ON THE REDUCTION OF AIR POLLUTION FROM EXISTING
                      MUNICIPAL WASTE INCINERATION PLANTS
THE COUNCIL OF THE EUROPEAN COMMUNITIES ,
Having regard to the Treaty establishing the European Economic Community ,
and in particular Article 130 S thereof ,
Having regard to the proposal from the Commission ,
Having regard to the opinion of the European Parliament ,
Having regard to the opinion of the Economic and Social Committee ,
                   12                   3          4
Whereas the 1973    ,   1977   ,   1983   and 1987   European Community action
programmes on the environment stress the importance of the prevention and
reduction of air pollution ;
Whereas the Council Resolution of 19 October 1987 on the action programme
on the environment for 1987 to 1992 states that it is important for
Community action to concentrate , inter alia , on implementation of
appropriate standards in order to ensure a high level of public health and
environmental protection ;
   O.J. No C112 , 20.12.1973 , p . 1
   O.J. No 039, 13.6.1977, p . 1
   O.J. No C46 , 17.2.1983 , p . 1
 4
   O.J. No C328 , 7.12.1987, p. 1
 ---pagebreak---                                                                                Vf
                                      - 2 -
Whereas Council Directive 75 /442/ EEC of 15 July 1975 on waste ^ provides
that waste must be disposed of without endangering human health and
without harming the environment ; whereas , to this end , the same Directive
stipulates that any installation or undertaking treating waste must obtain
a permit from the competent authority relating , inter alia , to the
precautions to be taken ;
Whereas Council Directive 84 / 360 / EEC of 28 June 1984 on the combating of
air pollution from industrial plants ^ provides for the Member States to
implement policies and strategies , including appropriate measures , for the
gradual adaptation of existing plants to the best available technology ;
whereas these provisions apply in particular to existing municipal waste
incineration plants ;
Whereas   the  abovementioned    Directive  84 / 360 / EEC stipulates that the
Council , acting unanimously on a proposal from the Commission , shall , if
necessary ,   fix emission limit values based on the best available
technology not entailing excessive costs and suitable measurement
techniques and methods and whereas it is advisable to avoid that the limit
values fixed entail an excessive energy consumption ;
Whereas incineration of municipal waste gives rise to emissions of
substances which can cause air pollution and thereby harm public health
and the environment ;     whereas in some cases this pollution may have
tfansboundary features
Whereas the techniques for reducing emissions of pollutants from municipal
waste incineration plants are well established ; whereas they must be
applied progressively in existing incineration plants , taking due account
of the technical characteristics , rate of utilization and the length of
the remaining life of the plant and of the need to avoid excessive costs ;
whereas they provide a mean of attaining concentrations of pollutants in
the combustion gases not exceeding certain limit values ;
   O.J. No L194 , 25.7.1975 , p. 39
 6
   O.J. No L188 , 16.7.1984 , p. 20
 ---pagebreak--- Whereas all the Member States have laws , regulations and administrative
provisions concerning the combating of air pollution from stationary
plants ;   whereas several Member States have specific provisions on
municipal waste incineration plants ;
Whereas by fixing emission limit values and other pollution prevention
requirements the Community helps increase the effectiveness of the action
taken by the Member States to combat air pollution from municipal waste
incineration plants ;
Whereas , in order to ensure rapidly an effective protection of the
environment without imposing to the undertakings concerned an excessive
burden ,    appropriate time limits must be     set for adapting existing
incineration plants to the best available technology not entailing
excessive costs ; whereas , to this end , account must be taken not only of
the needs     of the  environment but also of the technical and economic
constraints including energy considerations ; wheras in the long run all
municipal waste incineration plants should observe the same conditions ,
but in the interim less stringent requirements can be accepted at plants
with only a short service life remaining ;
 Whereas the requirements imposed on existing plants must include an
 obligation to observe emission limit values for the most significant
 pollutants and appropriate combustion conditions ; whereas provision must
 be made for appropriate measurements and verifications at the incineration
 plants ; wheras the public must be informed of the results obtained .
 HAS ADOPTED THIS DIRECTIVE :
 ---pagebreak---                                     Article 1
   For the purposes of this Directive :
1. " Air pollution " means the introduction by man , directly or indirectly ,
   of substances or energy into the air resulting in deleterious effects
   of such a nature as to endanger human health , harm living resources
   and ecosystems and material property and impair or interfere with
   amenities and other legitimate uses of the environment .
2. " Emission    limit   value " means   the   concentration  and / or mass  of
   polluting substances which is not to be exceeded in emissions from
   plants during a specified period .
3. " Municipal waste " means domestic , refuse ,    commercial and trade waste
   and other waste equivalent to domestic refuse .
4. " Municipal waste incineration plant " means any technical equipment
   used for the treatment of municipal waste by incineration , with or
   without recovery of the combustion heat generated , but excluding :
   - combustion plants which are designed to use other fuels but which
       burn a fuel derived from municipal waste as a back-up ;
   - plants used specifically for the incineration of sewage sludge ,
       chemical , toxic and dangerous waste , hospital waste or other types
       of special waste , on land or at sea , even if these plants may burn
       municipal waste as well .
   This    definition     covers  the   entire   installation   comprising  the
    incinerator ,    its waste ,  fuel and air supply systems and the devices
   and systems for checking incineration operations and continuously
    recording and monitoring incineration conditions .
5.  " Existing plant " means a municipal waste incineration plant for which
    authorization to operate is granted before the date specified in
    Article 12(1 ) of this Directive .
 ---pagebreak---                                                                             V6
                                        5
6.  " New plant " means a municipal waste incineration plant for which
    authorization to operate is granted as from the date specified in
    Article 12(1 ) of this Directive .
7.  " Nominal capacity of the incineration plant " means the sum of the
     incineration capacities of the furnaces of which the plant is
     composed , as specified by the constructor, on the basis of :
    - the quantity of waste incinerated , the calorific value and other
        characteristics of the waste to be treated ;
     - the factors which determine the lifespan of the plant , namely the
        technical characteristics and its permissible rate of utilization .
                                    Article 2
As part of their policies and strategies for the gradual adaptation of
existing Industrial plants to the best available technology , as required
by Article 13 of Council Directive 84 / 360 / EEC of 28 June 1984 on the
combating of air pollution from industrial plants         Member States shall
take appropriate measures to ensure that the operation of existing
municipal waste incineration plants is subject :
     a.   within five years from the date specified in Article 12(1 ), to the
          conditions laid down in Articles 3 to 9 of this Directive ;
     b.   within ten years from the date specified in Article 12(1 ), to the
          conditions imposed on new incineration plants by Council Directive
           (...) of (...) on the prevention of air pollution from new
          municipal wastfe incineration plants .
The competent authorities shall ensure that any adaptation of existing
plants decided after taking account of the length of their remaining life
and of the time limits and conditions         laid down in this Directive is
carried out as soon as possible .
 7
   O.J. No L188 , 16.7.1984 , p. 20
 ---pagebreak---                                   Article 3
Within the time limit laid down in Article 2 . a . of this Directive , the
following emission limit values , standardized at the following conditions
: temperature 273 K, pressure 101.3 kPa, 1 1 X oxygen or 9% CO ^ and dry gas ,
shall apply to existing municipal waste incineration plants :
    a . Plants whose nominal capacity is at least 6 tonnes of waste per
        hour
        - total dust                                      100 mg /Nm^
    b . Plants whose nominal capacity is less than 6 tonnes of waste per
        hour but at least one tonne per hour
        - total dust                                      150 mg/Nm^
    c . Plants whose nominal capacity is less than one tonne of waste per
        hour
        - total dust                                      600 mg /Nm^
                                  Article A
1.  Within the time limit laid down in Article 2 . a . of this Directive ,
    existing municipal waste incineration plants must be designed ,
     equipped and operated in such a way that the gas resulting from the
     combustion of the waste is raised , after the last injection of
     combustion air ,  in a controlled and homogeneous fashion and even in
     the most unfavourable conditions ,  to a temperature of at least 850°C
     for at least 2 seconds in the presence of at least 6% oxygen .
 2.  Within the time limit laid down in paragraph 1 of this Article all
     existing municipal waste incineration plants shall observe a limit
     value of 100 mg/Nm^ for the carbon monoxide concentration in the
     combustion gases while in operation .
     This limit value shall be standardized at the following conditions :
     temperature 273 K, pressure 101.3 kPa , 11% oxygen or 9% CO2 and dry
 ---pagebreak---                                                                                 U
                                       - 7 -
                                       Article 5
1.    The temperature and oxygen content laid down in Article 4(1 ) of this
      Directive are minimum values to be       observed at  all times  when the
      plant is in operation .
2.    The carbon monoxide ( CO ) concentration laid down in Article 4(2 ) of
      this Directive is the limit value for the dai ly. average calculated by
      taking into account , where appropriate , only the hours in which the
      plant is actually in operation , including the start-up and shut-off
      periods .
3.    In the case of total dust ,    wherever continuous monitoring is required
      under Article 6 of this Directive :
      a.   none of the monthly averages of the concentration values measured
           for these substances must exceed the corresponding limit value ;
      b.   none of the daily averages of the concentration values measured
           for these substances must exceed the corresponding limit value by
           more than 30% .
      For the purposes of calculating the abovementioned average values ,
      only the periods in which the plant is actually in operation shall be
      taken into account , including the start-up and shut-off periods .
4.     In the case of total dust , wherever periodic measurements are required
      under Article 6 of this Directive , the concentration values measured
    . in accordance with the rules laid down by the competent authorities
       under Articles 6(3 ), 6(4 ) and 6(5 ) must not exceed the limit value .
                                        Article 6
 1.    Within the time limit laid down in Article 2 . a . of this Directive , the
       following measurements shall be required for existing incineration
       plants :
 ---pagebreak---                                                                            73
                                      - 8 -
   a.   concentrations of certain substances in the combustion gases
         i.  the following shall be continuously measured and recorded :
             - at all existing plants ,         the concentrations of carbon
               monoxide ( CO ) and oxygen ;
             - at existing plants with a nominal capacity of 1 tonne of
               waste per hour or more , the concentration of total dust ;
      ii .   the following shall be measured periodically :
             - at existing plants with a nominal capacity of less than 1
               tonne of waste per hour , the concentration of total dust .
   b.    operating parameters :
         i.  the temperature of the gases in the area where the conditions
             imposed by Article 4(1 ) of this Directive are satisfied shall
             be continuously measured and recorded ;
      ii .   the residence time of the combustion gases at the minimum
             temperature of 850°C specified in Article 4(1 ) of this
             Directive , under the most unfavourable operating conditions
             envisaged for the plant must be the subject of appropriate
             verifications at least once after any adaptation of the plant
             and , under all circumstances , before the time limit set in
             Article 2 . a . of this Directive .
2. The results of the measurements referred to in paragraph 1 of this
   Article shall be standardized at the following conditions :
   temperature 273 K, pressure 101.3 kPa, 11% oxygen or 9% CO^, and dry
   gas .
3. All the measurement results shall be recorded , processed and presented
   in an appropriate fashion so that the competent authorities can verify
   compliance with the conditions laid down ,              in accordance with
   procedures to be decided upon by those authorities .
 ---pagebreak---  4.  The sampling and measurement procedures , methods and equipment used to
     satisfy the obligations imposed by paragraph 1 of this Article and the
     location of the sampling or measurement points shall require the prior
     approval of the competent authorities .
 5.  For the periodic measurements , the competent authorities shall lay
     down appropriate measurement programmes to ensure that the results are
     representative of the normal    level of emissions of the substances
     concerned .
     The results obtained must be suitable for verifying that the limit
     values applicable have been observed .
 6.  The Council acting by a qualified majority on a proposal from the
     Commission shall adopt the appropriate decisions concerning the steps
     to be taken to measure emissions of polychlorinated dibenzodioxins and
     of polychlorinated dibenzofurans from new municipal waste incineration
     plants and the reference methods to be used for measuring these
     substances as soon as the state of knowledge in this field will permit
     it .
                                  Article 7
 Within the time limit laid down in Article 2 . a .  of this Directive ,  all
'existing municipal waste incineration plants shall be equipped with
 auxiliary burners . These burners must be switched on automatically when
 the temperature of the combustion gases falls below 850°C .       They shall
 also be used during plant start-up and shut-down operations in order to
 ensure that the abovementioned minimum temperature is maintained at all
 times during these operations and as long as the waste is             in the
 combustion chamber .
 However , if the total utilization time of these burners exceeds 5% of the
 total plant operation time for seven consecutive days , appropriate
 measures must be taken to restore adequate combustion conditions .
 ---pagebreak---                                   Artide 8
1.  Should the measurements taken show that the limit values laid down in
    this Directive have been exceeded / the competent authority    shall be
    informed as soon as possible . It shall lay down appropriate  emergency
    measures to ensure that the abovementioned limits are again   observed .
    Plants which do not comply with these provisions shall no     longer be
    operated .
2.  The competent authorities shall lay down the maximum permissible
    period of any breakdowns or stoppages of the purification devices
    during which the concentrations in the discharges into the air of the
    substances which these devices are designed to reduce exceed the limit
    values laid down .   Under no circumstances may they exceed 16 hours
    uninterrupted operation ;  their cumulative duration over a year shall
    be less than 200 hours .
    The dust content of the discharges shall under no circumstances exceed
    600 mg/Nm^ during the periods referred to in the preceding paragraph,
    and all the other conditions , in particular the combustion conditions ,
    shall be complied with .
                                  Article 9
The public shall be informed of the obligations imposed in respect of
existing incineration plants pursuant to this Directive .   The public will
also have access , in accordance with appropriate procedures and in the
form decided upon by the competent authorities , at sufficient intervals ,
to the results of measurements of pollutant emissions and measurements
relating to the plant operating conditions .
                                  Article 10
Member States shall take the necessary measures to ensure that compliance
with the conditions imposed on existing incineration plants pursuant to
this Directive is verified by the competent authorities .
 ---pagebreak---                                   Artide 11
Member States may adopt more stringent provisions than those of this
Directive /    where necessary ,   in order to protect health and the
envi ronment f
                                  Article 12
1.   Member States shall bring into force the laws ,         regulations and
     administrative provisions necessary to comply with this Directive not
     later than ( 30 June 1989 ). They shall forthwith inform the Commission
     thereof .
2.   Member States shall communicate to the Commission the texts of the
     provisions of national law which they adopt in the field governed by
     this Directive .
                                  Article 13
This Directive is addressed to the Member States .
 Done at Brussels ,
                                             For the Council
                                             The President
 ---pagebreak---                                                                          53
                       SMALL BUSINESS IMPACT STATEMENT
                         \      11
                         t
These proposals for Council Directives should not have any direct effect
on small and medium size businesses , which are not concerned with municipal
waste incineration .
Some makers of small-sized incinerators could nevertheless be persuaded to
re-orientate their production towards larger and more efficient installations .
 ---pagebreak--- FICHE D' IMPACT SUR LA COMPETITIVITE ET L' EMPLOI
I.     Quelle est la justification principale de la mesure ?
       Il s' agit de réduire la pollution atmosphérique en provenance des installa¬
       tions d' incinération des déchets municipaux et de fixer des normes d' émission
       pour ces installations aux fermes de l' article 8 de la directive 360 / 84 .
II .   Caractéristiques des entreprises concernées ... : :En particuliers :
       - Y a- t- il un grand nombre de PME ?
          Les PME ne sont pas en général concernées par l' incinération des
          déchets municipaux .
       - note t -on des concentrations dans des régions ?
                         t
          . éligibles aux aides régionales des Etats membres ?
          . éligibles au FEDER ?
                                              1
              non applicable
 III .  Quelles sont les obligations imposées directement aux entreprises ?
       Aucune . L' incinération des déchets municipaux est gérée par les
        collectivités locales .
 IV .   Quelles sont les obligations susceptibles d' être imposées indirectement
        aux entreprises via les autorités locales ?
        Le seul effet indirect sera représenté par les spécifications plus sévères
        requises des fournisseurs d' équipement ( fours , équipement des filtrage , etc. )
        A ce point de vue les spécialistes de fours de petite taille devrait
        probablement réorienter leur production .
 V.     Y a- t- il des mesures spéciales pour les PME ?    Lesquelles ?
        NON
 VI .   Quel est l' effet prévisible ?
        - sur la compétitivité des entreprises ?        )
                                                          aucun effet sensible dans
                                                           le secteur de PME
        - sur l' emploi
 ---pagebreak---                                                                      3S
                                   - 2 -
VII . Les partenaires sociaux ont -ils été consultés ?
                f
                                        non applicable
      - avis des partenaires sociaux
                                           f
      - en général commentaires positifs ( syndicats , employeurs ).