So far there have been lots of discussions but no action on an EU Biowaste Directive. A directive is badly needed, says Enzo Favoino
Since the mid-1980s, composting of separately collected biowaste has undergone impressive growth across Europe. The first separate collection schemes were established in 1983 in Germany. Now, obligations for separate collection of biowaste exist in several Member States, mostly in central Europe.
For example, in Austria there is an obligation for households to deliver biowaste separately or compost their biowaste in the backyard. In Germany, joint implementation of the Kreislaufwirtschaft und Abfallgesetz (Law on Waste and the Closed Loop of Materials) and Bioabfall Verordnung (Biowaste Ordinance) has made separate collection of biowaste a common feature of local collection schemes, with only a few exceptions. And in the Netherlands, there is an obligation for each municipality to establish a separate collection scheme.
A few other countries have composting targets (Sweden) or wider recycling targets (Italy) to act as a ‘driver’ for diffusion of separate collection and composting. The successful implementation of local strategies for separate collection and composting - including pilots in more difficult areas such as many sites in southern Italy - supports the viability and affordability of a broad composting strategy.
Nevertheless, further development of composting - such as in new Member States, in the UK and elsewhere - requires clarification about long-term trajectories. As shown by the national strategies mentioned above, a steady and efficient development of composting calls for drivers in domestic policy that give confidence to local authorities and investors about the mid- and long-term context. Without these, the bankability of investments (such as process technologies, collection equipment, etc.) would not be secure, and local waste policy would remain trapped within the ever-changing visions of ever-changing local governments. It is therefore important to lay down some firm foundations.
The way forward
The EC Landfill Directive (99/31/CE) includes the key provision for the sharp reduction of landfilled biowaste within the next few years - by up to 65% in a 15-year timeframe. As a result, it will be crucial for countries that currently depend on landfills to find out how diversion of biodegradable municipal waste will evolve.
One tool that is expected to offer added impetus in this matter is the European Thematic Strategy on Soil Protection, developed within the Environmental Action Programme. The final strategy is due to be published soon. In the strategy, restoring organic fertility of soils is prioritized to enhance agronomic and environmental functions for the purpose of:
- prevention of erosion and floods
- sequestration of carbon,thereby fighting climate change according to key provisions of the European Climate Change Programme (ECCP)
- reducing use of mineral fertilizers and pesticides, for the prevention of related pollution
- enhancement of biodiversity.
This gives a powerful rationale to divert biowaste from disposal towards composting.
Bearing this in mind, the EC Communication on the Soil Strategy (COM(2002) 179, of 16 April 2002) focused on the potential pool of organic matter in biowaste. Remarkably, an initiative on biowaste was listed among ‘Actions’ by the Communication, along the following lines:
‘By the end of 2004 a directive on compost and other biowaste will be prepared with the aim to control potential contamination and to encourage the use of certified compost.’
Arguably, the goal of ‘promoting the use’, while concurrently ‘preventing contamination’ can only be fulfilled through a wide implementation of strategies aiming at source separation of biowaste.
Will there be an EU Strategy on Biowaste?
In line with the mandate included in the Communication on the Soil Strategy, during recent years the EC has been working on a proposal for a Directive on Biological Treatment of Biodegradable Waste. The aim was to seek a balanced approach to the diversion targets established by the Landfill Directive and to promote programmes for the recycling of biowaste, thereby overthrowing the paradox that ‘compost is less produced where it is most needed’ (that is, in south Europe and new Member States).
According to EC Working Documents published around 2000-2001, one of the key provisions was the mandate for Member States to implement programmes for source separation of biowaste.
Unfortunately, after the great expectations raised by those Working Documents, no further steps were taken for quite a long time. In late 2003, another ‘Discussion’ document was issued to stimulate and steer a broader discussion among EU institutions, stakeholders and governments. The document again considered source separation as a ‘key point in a successful strategy for compost promotion’, but it did not go into details on programmes for source separation.
Ongoing progress in terms of the revised Waste Directive and the concurrent definition of the Thematic Strategy on Waste now seems to go in the opposite direction. In fact, the Commission neither seems to be planning a Biowaste Directive anymore, nor is it considering consistent drivers to promote a steady development of composting across Europe. Instead, the EC seems to have watered down plans for action to an ‘end-of-waste standard’ where composted biowaste would not be considered waste anymore, while abandoning a strategic platform to drive decisions at national and local levels. As noted previously in WMW (in particular the July/August 2005 issue), this lack of drivers is likely to cause problems to the bankability of investments and will not push decision-makers to make efforts on separate collection, construction and management of process sites, and implementation of consistent marketing strategies.
The extent to which a European Directive (or strategy) will provide clarification on long-term trajectories for separate collection of biowaste and composting is a vital concern for the present and future development of domestic strategies in many corners of Europe. Most EU Member States are still trying to ‘find their way’. In this respect a clear EC biowaste policy, bridging soil and waste strategies, would enable Member States to move on from endless local discussions about what is the best combination of treatment options.
Austria and other central European countries have ‘shown the way’. Composting is a viable and affordable strategy. But we need consistent drivers to give confidence and a long-term vision to both public and private initiatives.
ENZO FAVOINO is Chair of the ISWA Working Group on Biological Treatment, and is a Researcher at Scuola Agraria del Parco di Monza, Italy. e-mail: favoinomail@tin.it
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