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Development of scientific and technical foundations for a national waste prevention programme
(2010)
In a new waste hierarchy the amended EU Waste Framework Directive (WFD) (2008/98/EG) confirmed the prevention of waste as a priority measure to protect the environment with regard to the production and handling of waste. Amongst others the Member States are requested to promote waste prevention. According to article 29 par. 1 WFD the prevention measures have to be planned in terms of waste prevention programmes to be created by the Member States until December 12th 2013. These prevention programmes are to describe existing waste prevention measures and set waste prevention goals. The progress is to be monitored and assessed by targeting appropriate, specific qualitative or quantitative benchmarks for adopted waste prevention measures. The programmes may be included in waste management plans or other environmental programmes. By the objectives and measures of prevention programmes the environmental impacts associated with generation of waste shall be decoupled from economic growth.
As illustrated by the case studies of end-of-life vehicles and waste electric and electronic equipment, the approach of an extended producer responsibility is undermined by the exports of used and waste products. This fact causes severe deficits regarding circular flows, especially of critical raw materials such as platinum group metals. With regard to global recycling there seems to be a responsibility gap which leads somehow to open ends of waste flows and a loss or down-cycling of potential secondary resources. Existing product-orientated extended producer responsibility (EPR) approaches with mass-based recycling quotas do not create adequate incentives to supply waste materials containing precious metals to a high-quality recycling and should be amended by aspects of a material stewardship. The paper analyses incentive effects on EPR for the mentioned product groups and metals, resulting from existing regulations in Germany. It develops a proposal for an international covenant on metal recycling as a policy instrument for a governance-oriented framework to initiate systemic innovations along the complete value chain taking into account product group- and resource group-specific aspects on different spatial levels. It aims at the effective implementation of a central idea of EPR, the transition of a waste regime still focusing on safe disposal towards a sustainable management of resources for the complete lifecycle of products.
This paper addresses future perspectives for the management of resources on an international level. Failures of international open markets result in significant material leakage. Here, taking the example of material used vehicles, we develop elements of an international metal covenant that should allow for a more sustainable management of global material flows in that area. Our proposal is based on two principles: any regulation should actively seek industry participation, taking advantage of business interest in supplying a sufficient quantity of materials while lowering materials costs; and it should also address public issues such as sustainability of recycling and waste. In this paper we first analyse contracts as a tool for bridging gaps in knowledge when multiple actors are involved. We then give empirical evidence for material leakage in the case of used vehicles from Germany, before outlining the elements of a proposed international metals covenant. Finally, we analyse potential impacts and discuss legal and institutional issues.
Defining the prevention of waste as top priority of the waste hierarchy - as confirmed by the revised Waste Framework Directive (WFD) - is much more than a simple amendment of ways to deal with waste, but means nothing less than a fundamental change of the socio-technical system of waste infrastructures and requires a transition from end-of-pipe technologies towards an integrated management of resources. The WFD therefore obligates member states to develop national waste prevention programs as a new policy instrument with the development of waste prevention indicators as one of the core elements. The article discusses the limitations of waste-based key figures and shows the need for more process-oriented indicators. As part of the development of national waste prevention programs such indicators reveal the relevance of different barriers that have to be overcome in order to make prevention an effective top priority in the waste hierarchy. With regard to path dependencies caused by sunk costs in end-of-pipe waste infrastructures the absolute amount of integrated environmental investments, as well as their share of the total waste-related investments, can be seen as indicators for the level of innovation activities aimed at waste prevention. Sector-specific indicators for the production phase could be used as benchmarks and to highlight differences in the need for policy interventions.