Waste Legislation and Management in Finland

Finnish Environment Institute (SYKE)Risto Saarinen

8.6.2011

SYKE roles in Waste Management

Expert institution, providing data and advice for administration and the private sector:

Prepares waste data (with Statistics Finland) Drafts policies and strategies for Ministry Participates in drafting of new law Prepares guidelines for waste issues, including BAT Issues permits for transfrontier waste shipments

Finnish Legislative System

Nationallaw

EC law

Constitution

International agreements

Primary law

LAW Secondarylaw

PresidentialDecrees

GovernmentDecrees

Internationallaw

Definition by European Waste framework directive: “Waste" shall mean any substance or object in the categories set out in Annex I which the holder discards or intends or is required to discard

ANNEX ICATEGORIES OF WASTEQ1 Production or consumption residues not otherwise specified belowQ2 Off-specification productsQ3 Products whose date for appropriate use has expiredQ4 Materials spilled, lost or having undergone other mishap, including any materials, equipment, etc., contaminated as a result of the mishapQ5 Materials contaminated or soiled as a result of planned actions (e.g. residues from cleaning operations, packing materials, containers, etc.)Q6 Unusable parts (e.g. reject batteries, exhausted catalysts, etc.)Q7 Substances which no longer perform satisfactorily (e.g. contaminated acids, contaminated solvents, exhausted tempering salts, etc.)Q8 Residues of industrial processes (e.g. slags, still bottoms, etc.)Q9 Residues from pollution abatement processes (e.g. scrubber sludges, baghouse dusts, spent filters, etc.)Q10 Machining/finishing residues (e.g. lathe turnings, mill scales, etc.)Q11 Residues from raw materials extraction and processing (e.g. mining residues, oil field slops, etc.)Q12 Adulterated materials (e.g. oils contaminated with PCBs, etc.)Q13 Any materials, substances or products the use of which has been banned by lawQ14 Products for which the holder has no further use (e.g. agricultural, household, office, commercial and shop discards, etc.)Q15 Contaminated materials, substances or products resulting from remedial action with respect to landQ16 Any materials, substances or products which are not contained in the abovementioned categories.

ENVIRONMENTAL MANAGEMENT INSTRUMENTS

Laws, regulations, economic instr.

Evaluation ofthe instruments

Compliance control, monitoring emissions,

wastes and environment

COMPANY ITSELF:Self Monitoring,

Quality Systems, EMS,Environmental Labels

Permits, notifications, prohibitions

Environmental PolicyStrategy and plans

Environmental permits

Regional State Administrative Agencies• Major activities:

Paper mills, Large wastewater treatment plants, Landfills etc.

Municipal Environmental authorities• Minor activities: Small

wastewater treatment plants, Treatment of contaminated soil etc.

Environmental Permit Authorities

SupremeAdministrative Court

VaasaAdministrative Court

Regional State Administrative Agencies

Municipal EnvironmentProtection Authorities in

the municipalities

General principles in environmental permits

• Integrated approach• Polluter pays principle• Best Available Techniques/Best

Environmental Practice• Precautionary principle• Prevention principle• The operator must be aware of impacts,

risks and mitigation methods

APPLICATION

Informing the public

StatementsComplaintsOpinions

Rejoinder of the Applicant

Permit Consideration

DECISION

Information of the Decision

APPEAL Legally valid decision

NegotiationsInspections

Permitting procedure

APPELATE COURTS

Environmental Permit Conditions

Consideration case-by-case Water and air emission limit values (based on

BAT, kg/d, mg/l or mg/m3 n) and other requirements

Minimum standards for certain emissions to air, water and noise in the Government Decrees

Waste utilization, management and prevention Monitoring of operation, emissions and impacts Measures to manage risks and exceptional

situations Energy efficiency aspects Compensations of damages to water use Termination of operations

Openness in the Procedure

Statements are requested from the following authorities:• the municipality where the installation is

located• all the municipalities in the impact area• all the supervision authorities

(environmental, fishery...) Other institutes case by case Complaints and opinions can be expressed

by:• all the parties (persons) affected by the

application• NGO’s and other registered associations

Applicant’s rejoinder

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Monitoring at industrial plants – defined in the environmental permits

Monitoring of the processes, purification units, chemicals and operative parameters

Monitoring of emissions and waste • quality and quantity• direct measurements,

sampling, calculations• continuous, periodic• includes end–of-pipe, diffuse

and exceptional emissions Impact monitoring

• water bodies, ground water and soil

• possibly biotests• air quality, deposition• terrestrial ecosystems• often joint monitoring by the

polluters

Initial measures • negotiation (clarification of the illegality of the

situation and necessary measures) • notice• demand regarding the measures for restoring

the legal state of affairs• request for clarification (required for further

measures)

Coercive measures Criminal proceedings

Enforcement - measures to restore the legal state of affairs

Coercive measures

Indirect coercive measures• Rectification of the violation

• prohibition• order to fulfill duty• order to restore environment or eliminate the harm

caused to the environment• order to evaluate the environmental impacts

• Increased effectiveness: threat of fine, rectifying the situation at the defaulting party’s expense, or suspending the operations

Direct administrative compulsion • Suspension of operation

Actions to be taken in case of environmental offences

Offence is reported by the regional environment centre to the police if • the illegal situation is the result of a deliberate act or

gross negligence• acts have been only slightly negligent but the

consequences are considerable• the illegal situation has gone on for a long time• notices and demand to correct the situation have not

been responded to • significant economic benefit has been acquired

Offence is not reported to the police if• the act or negligence is not intentional or planned • the operator has observed duty of care and corrected the

situation willingly

Environmental regulation of the Finnish industry – key elements

Robust, predictable and clear regulation and enforcement, interaction between the authorities and the industry already in setting up new regulations, open BAT information exchange

Transparent and interactive permit and enforcement procedures, self-monitoring, environmental reporting

Room and encouragement for improvements and innovations by the companies

Photo: J. Mannio

Waste Legislation and Strategies in Finland

EU Directives are implemented into national law – sometimes even stricter national regulations

Biowaste strategy (2016: max 25 % of biodegradable waste to landfills) National Waste Plan until 2016:

50 % material recovery, 30 % energy recovery Waste Act and Decrees, now being redrafted (EU Waste Strategy etc.) Environment Protection Act and Decree Decrees of Council of State (eg. for construction waste) Decrees of the Ministry of the Environment Municipal waste management regulations (orders by municipalities)

Waste hierarcy (different ways to express, same idea)

Waste hierarchy

The waste hierarchy generally lays down a priority order of what constitutes the best overall environmental option in waste legislation and policy, while departing from such hierarchy may be necessary for specific waste streams when justified for reasons of, inter alia, technical feasibility, economic viability and environmental protection.

EU: (a) prevention;(b) preparing for re-use;(c) recycling;(d) other recovery, e.g. energy recovery; and(e) disposal.

General policies in waste management

Prevention: The production and harmful impacts of waste shall be reduced and if possible prevented at source.

Polluter Pays: The producer of waste takes responsibility of the cost for waste management.

Producer Responsibility: Manufacturer and importer bears the responsibility for waste management, instead of waste producer (certain product groups).

Precautionary Principle: Potential problems related to wastes and waste management should be anticipated and avoided.

Proximity Principle: Waste should be disposed of close to their source. Self-sufficiency Principle: The EU and member states should remain self-

sufficient with regard to the disposal of waste

EU Waste Shipment Regulation

Detailed permitting mechanisms for all waste shipments Contains also the requirements of the Basel Convention and

the OECD Decision Export ban for hazardous waste outside OECD Controls also non-hazardous waste shipments outside OECD

(waste/country specifically)

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Producer responsibility

For the following waste streams:• End-of-life vehicles• Tyres• Waste electric and electronic equipment (WEEE)• Waste paper• Packaging waste• Batteries and accumulators

Waste management (WM) arrangements

Regional WM organizations (35)- Companies or co-operatives of municipalities

- WM of 92 % of inhabitants - WM of part of the enterprises Individual municipalities - WM of inhabitants and

part of the enterprises Private WM companies - WM for enterprises

Source: Statistics Finland

Maa- ja metsätalous sekä kalastus

Mineraalien kaivu

Teollisuus

Energiantuotanto

Rakentaminen

Palvelut

Kotitaloudet

0 5 10 15 20 25

Waste amounts in Finland (million tons per year)

Agriculture, forestry and fishery

Mining

Industry

Energy production

Construction

Services

Households

Number of municipal landfills

1990 = 480 2000 = 190 2005 = 80 2008 = 50

Alternative waste strategies 1

”Spread around = use”

Alternative waste strategies 2

”Encapsulate”

Waste treatment in Europe 2008 (all waste)

Waste treatment in Europe 2008 (all waste)

DisposalIncineration

Recovery

GERMANY

NETHERLANDS

SWEDEN

AUSTRIA

DENMARK

BELGIUM

LUXEMBURG

FRANCEEU27

ESTONIAITALY

FINLAND

UNITED KINGDOMSPAIN

IRELAND

PORTUGAL

CZECH REP

POLAND

HUNGARY

SLOVENIA

ROMANIA

SLOVAKIA

GREECE

CYPRUS

LITHUANIA

MALTA

LATVIA

BULGARIA

0 %

10 %

20 %

30 %

40 %

50 %

60 %

70 %

80 %

90 %

100 %

Waste treatment in Europe 2008 (municipal solid waste)

GERMANY

NETHERLANDS

SWEDEN

AUSTRIA

DENMARK

BELGIUM

LUXEMBURG

FRANCEEU27

ESTONIAITALY

FINLAND

UNITED KINGDOMSPAIN

IRELAND

PORTUGAL

CZECH REP

POLAND

HUNGARY

SLOVENIA

ROMANIA

SLOVAKIA

GREECE

CYPRUS

LITHUANIA

MALTA

LATVIA

BULGARIA

0 %

10 %

20 %

30 %

40 %

50 %

60 %

70 %

80 %

90 %

100 %

Waste treatment in Europe 2008 (municipal solid waste)

Disposal

Recovery

Incineration

Climate change mitigation options in waste management

Increase municipal solid waste incineration Redirect biodegradable industrial and construction waste to

energy recovery Promote anaerobic digestion

• Possibly feed tariff for electricity

Ban/tax landfilling for biodegradable and other organic waste Improve gas utilisation and collection in landfills

Waste definition

Facilitate material recovery by reducing bureaucracy• By-products defined• End-of-waste criteria defined

By-products

A substance or object, resulting from a production process, the primary aim of which is not the production of that item, may be regarded as not being waste but as being a by-product only if the following conditions are met:

(a) further use of the substance or object is certain;(b) the substance or object can be used directly without any further processing other than normal industrial practice;(c) the substance or object is produced as an integral part of a production process; and(d) further use is lawful, i.e. the substance or object fulfils all relevant product, environmental and health protection requirements for the specific use and will not lead to

End-of-waste status

Certain specified waste shall cease to be waste when it has undergone a recovery, including recycling, operation and complies with specific criteria to be developed in accordance with the following conditions:

(a) the substance or object is commonly used for specific purposes;

(b) a market or demand exists for such a substance or object;

(c) the substance or object fulfils the technical requirements for the specific purposes and meets the existing legislation and standards applicable to products; and

(d) the use of the substance or object will not lead to overall adverse environmental or human health impacts.

Waste quality: Main opportunities and threats

Component Opportunity Threat

Organic carbon Energy and material recovery

Uncontrollable methane formation

Nutrients Recycling of nutrients for soil

remediation

Eutrophication of surface water

Metals Material recovery

Mineral compound Material recovery

Harmful substances

Toxicity

Heavy metals Toxicity

Hazardous waste Treatment of hazardous waste in 2008 2,2 Mt (3 % of total waste

amount)• Material recovery 0,3 Mt• Energy recovery 0,04 Mt• Other incineration 0,1 Mt• Landfill 1,8 Mt

List of wastes (EU): * mark indicates hazardous waste HW from Households: free of charge to municipal collection (waste

stations, big containers, circulating trucks, etc) HW from companies: HW companies collect, price/ quality and amount

Landfills of hazardous waste08

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in operation 31.12.2007

Name Municipality Owner

Suomen Erityisjäte Oy Forssa Waste management company

Kuusakoski Oy, Rajavuoren Kaatopaikka Heinola Industry

Ekokem Oy Ab Riihimäen toimipiste Riihimäki Industry

Etelä-Karjalan Jätehuolto Oy, Ongelmajätteiden loppusijoitusalue (pilaantuneet maat) Joutseno Waste management company

Outokumpu Tornion tehtaiden Hietainpään kaatopaikka Tornio Industry

Outokumpu Tornion tehtaiden pohjoinen jätealue Tornio Industry

Boliden Harjavalta Oy, Harjavallan läjitysalueet, Rikastushiekka-alue IV/Lammainen Harjavalta Industry

Norilsk Nickel Harjavalta Oy, Harjavallan läjitysalueet, Torttilan rikastushiekka 2 + 3 ja rautasakka-allas Harjavalta Industry

Ekokem-Palvelu Oy, Peräkorven käsittelykeskus, teollisuusjätteen kaatopaikka Pori Private company

Lakeuden Etappi, ongelmajätteen kaatopaikka Ilmajoki Waste management company

Outokumpu Zinc Oy (Boliden Kokkola Oy:n Kokkolan sinkkitehdas, Jätealue) Kokkola Industry

Stormossen Oy, ongelmajätteen kaatopaikka Mustasaari Waste management company

Mondo Minerals, Vuonoksen tehdas, Rikastushiekan läjitysalue Outokumpu Industry

Jyrin käsittelyasema, Pilaantuneiden maiden käsittelyalue Outokumpu Kunta

Oulun Jätehuolto, Ruskon jätekeskus, ongelmajätekaatopaikka Oulu Kunta

Ylä-Savon jätehuolto Oy, Peltomäen jätteenkäsittelypaikka, Peltomäki, raskasöljytuhka Iisalmi Waste management company

Ylä-Savon jätehuolto Oy, Peltomäen jätteenkäsittelypaikka, Peltomäki, asbesti Iisalmi Waste management company

Mondo Minerals, Rikastushiekan kaatopaikka Kaavi Industry

Riikinneva, ongelmajätteen täyttöalue 1 (Pilaantuneiden maiden loppusijoitus) Leppävirta Municipality

Riikinneva, asbesti Leppävirta Municipality

Control of hazardous chemicals in waste

Risk management and waste management of contaminated sites

Integration with Chemical policy, Soil protection policy

Substitution of hazardous chemicals in use

Control of hazardous substances in recycled materials

National waste plan (2016)

Objective: Prevent hazardousness of waste

Waste approach in Research of hazardous substances Action plan for substitution of selected chemicals ending up in wastes

National waste plan (2016)

Objective: Safeguards against hazardous substances in recycled materials

Self-monitoring and inspection of waste derived products Standards, certificates for waste derived materials and products

National waste plan (2016)

Objective: Management of contaminated sites

Cooperation of authorities in risk assessment Increase of budget funds for remediation Instructions for utilization of low-risk soil materials Harmonizing of norms for contaminated soil vs. hazardous waste vs.

landfilling vs. construction

National waste plan (2016)

Examples of recovery Waste paper: Fibre for new paper and board Wastewater sludge: Fertilizer Municipal solid waste: Fuel for CHP plant Batteries: Metals Biowaste: Biogas production Plastic part of a car: Energy and material recovery

Waste paper for fibre recovery

Recovery of carton

Lifecycle of waste

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Biogas production

Plastic part of a carSource http://lca.jrc.ec.europa.eu/lcainfohub

Crushed tyres and glassfor construction layers

Tyres for noice control wall

Wastewater sludge for soil remediation

Composted wastewater sludge for landscaping

WEE (waste electronic equipment) to…

Circuit board

Battery

Mixed steel

Cables

Berylliumoxide Plastics

Aluminium

…material recovery

ELINTARVIKE-TEOLLISUUS

Farm

TerminalAbsolutation

Food industry

Etanolix plant

St1 station

Biowaste to fuel ethanol and fodder for animals

Waste policy Challenges (and Trends)

Balancing between incineration/recycling (incineration coming) Policy tools for material efficiency, waste prevention (SYKE, Motiva) Division of tasks between municipalities and private sector waste

companies (waste is a resource with a price) Implementation of producer´s responsibilities (free riders etc.) Balancing between waste recycling and minimizing of health risks

(e.g. sludge, waste handling and sorting) Public acceptance of waste facilities (landfills, incinerators, transport) Contaminated soil remediation: limits and costs (how clean?)