JESSICA. JESSICA Instruments for Solid Waste Management in Greece STUDY

Transcription

1 JESSICA JOINT EUROPEAN SUPPORT FOR SUSTAINABLE INVESTMENT IN CITY AREAS JESSICA Instruments for Solid Waste Management in Greece STUDY Final Report - Part 1 Analysis of Solid Waste Management in Greece March 2010 This document has been produced with the financial assistance of the European Union. The views expressed herein can in no way be taken to reflect the official opinion of the European Union.

2 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 TABLE OF CONTENTS 1. BACKGROUND INFORMATION Country Presentation Climate Administrative Areas - Population Population Solid Waste Management Over the Past Few Years LEGAL FRAMEWORK OF WASTE MANAGEMENT IN GREECE Introduction Historical Background Basic Legal Instruments on Waste Management in Greece Solid Waste Management Planning Non Hazardous Solid Waste Packaging Waste and Special Streams Hazardous Waste Medical Waste Actors Involved in the Waste Management Sector Ministry of Environment, Energy and Climate Change Waste Management Inter-ministerial Committee Funding Public Works Municipalities and Waste Management Authorities Hellenic Recovery Recycling Corporation Environmental Permit Maturity Plan & Environmental Licensing Procedure FUNDING OF WASTE MANAGEMENT INVESTMENTS NSRF & Urban Development General Description of NSRF Sectoral Operational Programmes Regional Operational Programmes European Territorial Cooperation Programmes Financial Framework European Funds for Cohesion Policy

3 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part Environment & Sustainable Development Public Private Partnerships (PPP) framework General Description SWM projects approved by PPP Committee Proposal to PPP Unit MSW GENERATION AND MANAGEMENT IN GREECE Introduction MSW Current Generation and Composition MSW composition MSW Generation Prediction of MSW future generation Correlation between income and MSW generation Scenarios Analysis Current MSW Management in Greece Waste collection and transport Waste Treatment and Disposal Secondary Product Market Compost market RDF- SRF market Recyclable materials MSW management tariff system MSW MANAGEMENT FUTURE PLANNING Impact of EU Legislation Planned Facilities APPENDICES

4 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 TABLE OF TABLES Table 1: Greek Prefectures...10 Table 2: Greek Population over time...12 Table 3: Greek Population for every Prefecture in Table 4: Prediction of Greek Population growth until 2028 (Eurostat - convergence scenario)...14 Table 5: Funding from structural funds for waste management facilities in Attiki and Central Macedonia*...57 Table 6: MSW composition in Greece (J.M.D 50910/2727/03)...65 Table 7: Composition of packaging waste in MSW in Greece...66 Table 8: Annual total MSW generation in Greece from 1995 until 2007 (Eurostat)...66 Table 9: Annual MSW generated quantities in Attiki and Thessaloniki...68 Table 10: MSW generated quantities per unit of income in EU (2007)...71 Table 11: Real GDP growth rate - Growth rate of GDP volume percentage change on previous year (Eurostat)...73 Table 12: Average Annual Growth of GDP in EU Table 13: Central Scenario...77 Table 14: Min Scenario...77 Table 15: Max Scenario...78 Table 16: MSW generation and treatment in Greece ( )...81 Table 17: Existing MBT Facilities in Greece (MRFs not included)...84 Table 18: MSW Operating Results of the national packaging WM system...85 Table 19: Secondary products market average prices in Greece (2009)...92 Table 20: Financial contribution to Municipalities for the collection of packaging waste...93 Table 21: Existing and Planned Waste Treatment Facilities in Greece (MRFs not included)

5 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 TABLE OF FIGURES Figure 1: Greek Regions...9 Figure 2: Geographical allocation of the Greek Prefectures...10 Figure 3: Geographical allocation of the Greek R.O.Ps...11 Figure 4: Schematic representation of the licensing process steps...44 Figure 5: Flow chart of the maturity procedure in case of project approval through PPP Law (source: Ministry of Economy and Finance)...45 Figure 6: Allocation of the National Strategic Reference Framework funds...56 Figure 7: MSW composition in Greece in 2007 (J.M.D 50910/2727/03)...65 Figure 8: Annual total generation of MSW in Greece (Eurostat)...67 Figure 9: Annual generation of MSW per capita in Greece and EU-27 (Eurostat)...67 Figure 10: Correlation between per capita income and MSW generation in EU ( )...70 Figure 11: Correlation between per capita income and MSW generation in Greece ( )...71 Figure 12: Average Annual Growth of GDP in EU from 2000 until 2009 (Data sourced from Eurostat)...76 Figure 13: MSW Total Generation in Greece from assuming 3 different scenarios (min, central and max)...79 Figure 14: Management of MSW in Greece, from 1995 until 2007 (Eurostat)...81 Figure 15: Existing treatment facilities in Greece (2009)...85 Figure 16: Future quantities and management of BMW in Greece...96 Figure 17: Existing and planned treatment facilities in Greece (2009)

6 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 ABBREVIATIONS ACMAR ALAPT AUTH BMW C&D CEB DEFRA EAFRD EC EEA EFF EIA EIB ELV EPR ERDF ERDF ESF EU GET HERRCO HF J.M.D. JESSICA L.R. MA MBT MBT MD MRF MS Association of Municipalities and Communities in the Attiki Region Local Authorities of Prefecture of Thessaloniki Aristotle University of Thessaloniki Biodegradable Municipal Waste Construction and Demolition Waste Council of Europe Development Bank Department for Environment, Food and Rural Affairs (UK) European Agricultural Fund for Rural Development European Commission European Environment Agency European Fisheries Fund Environmental Impact Assessment European Investment Bank End of Life Vehicles Extended Producer Responsibility European Regional Development Fund European Regional Development Fund European Social Fund European Union Greek Environmental Technology S.A. Hellenic Recovery Recycling Corporation Holding Fund Joint Ministerial Decision Join European Support for Sustainable Investment in City Areas Legislative Regulation Managing Authority Mechanical & Biological Treatment Mechanical and Biological Treatment Ministerial Decision Materials Recovery Facilities Member State 6

7 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 NSRF NSRF NSWMP NTUA OP OP OPESD PD PEIA PFI PPC PPP RDF ROP RSWMP SOP SRF SWM TCG UDF WEEE WMA WtE National Strategic Reference Framework National Strategic Reference Framework National Solid Waste Management Plan National Technical University of Athens Operational Programme Operational Programmes operational program Environment and Sustainable Development Presidential Degree Preliminary Environmental Impact Assessment Private Finance Initiative Public Power Corporation Public and Private Partnership Refuse Delivered Fuel Regional Operational Programmes Regional Solid Waste Management Plans Sectoral Operational Programmes Energy-rich solid recovered fuel Solid Waste Management Technical Chamber of Greece Urban Development Fund Waste Electrical and Electronic Equipment Waste Management Authorities Waste to Energy Plant 7

8 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 1. BACKGROUND INFORMATION 1.1. COUNTRY PRESENTATION Greece (and the Greek Islands) is a peninsular and mountainous country located in Southern Europe, on the Mediterranean, between Albania, Bulgaria, Turkey and the Former Yugoslav Republic of Macedonia. The country dominates the Aegean and Ionian Sea. It has a total area of 131,940 square km of which land represents 130,800 square km and water 1,140 square km. Greece has a coastline of 13,676 km and is divided in regions and islands groups which are organized, for administrative purposes, into prefectures. The mainland consists of the following regions: Central Greece, Peloponnese, and Thessaly (east/central), Epirus (west), Macedonia (north/northwest), Thrace (northwest). Capital city of Greece is Athens located in the Attiki basin, in the centre of the Greek territory. The Peloponnese peninsula is located in the southern part of Greece. It is separated from the mainland by the artificial Isthmus of Corinth. The northern mainland is dissected by high mountains that extend southwards towards a landscape of fertile plains, pine-forested uplands and craggy, scrub-covered foothills. One of the characteristics of Greece is the large amount of islands. There are more than 2000 islands scattered both in the Aegean and Ionian Seas. The majority are located in the Aegean between the mainland and Turkey. Aegean Sea includes the regions of the Saronic, the closest islands from Athens, the Cyclades, with 39 islands such as Santorini, Mykonos, Paros and Naxos, the Dodecanese which lies off the Turkish coast, of which Rhodes is the best known, Crete the largest island, the Sporades near the city of Volos and the Northeast Aegean group which includes Lemnos, Lesvos, Chios, Samos and Ikaria. The Ionian Sea includes the islands of Corfu, Kefalonia, Lefkada, Ithaki, Zakynthos and Kithira. Greece is a mountainous country. The lowest point is the Mediterranean Sea, at 0m of height, and the highest point is the Mount Olympus, at 2,917 m. The country is quite rich in natural resources providing magnetite, lignite, bauxite, hydropower and marble. 8

9 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part CLIMATE Greece has a Mediterranean climate with plenty of sunshine, mild temperatures and a limited amount of rainfall. Due to the country's geographical position, its rugged relief and its distribution between the mainland and the sea, there is a great variation in Greece's climate. In summer, the dry hot days are cooled by seasonal winds, while mountainous regions have generally lower temperatures. The winters are mild in lowland areas, with a minimum amount of snow and ice, yet, mountains are usually snow-covered. Moreover, a common phenomenon is the occurrence of different climactic conditions during the same season (for instance, mild heat in coastal areas and cool temperatures in mountainous regions) ADMINISTRATIVE AREAS - POPULATION Greece is divided into 13 Regions, of which nine are located in the mainland and four in the islands. The Regions are further divided into 51 prefectures. The division into Regions was established through Article 61 of the Law 1622/1986 «Local Authorities Regional Development Democratic Programming». Later on, the Law 2503/97 «Regional administration, organization, personnel and regulations concerning local authorities» granted Regions the role of a decentralized administrative unit with their own personnel, departments and budget. The geographical allocation of the Regions can be seen in the picture below. 1.Attiκι 2.Central Greece 3.Central Macedonia 4.Crete 5. Eastern Macedonia & Thrace 6. Epirus 7. Ionian Islands 8. Northern Aegean 9. Peloponnese 10. Southern Aegean 11. Thessaly 12. Western Greece 13. Western Macedonia Figure 1: Greek Regions 9

10 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 The above-mentioned regions, are further divided into 51 prefectures which are listed in the following table. Table 1: Greek Prefectures 1 Attiκι 27 Kerkyra (Corfu) 2 Evya 28 Kefallonia 3 Eurytania 29 Leukada 4 Fokida 30 Zakynthos (Zante) 5 Fthiotida 31 Chios 6 Voiotia 32 Lesvos 7 Chalkidiki 33 Samos 8 Imathia 34 Arkadia 9 Kilkis 35 Argolida 10 Pella 36 Korinthia 11 Pieria 37 Lakonia 12 Serres 38 Messinia 13 Thessaloniki 39 Cyclades 14 Chania 40 Dodecanese 15 Herakleio 41 Karditsa 16 Lasythi 42 Larisa 17 Rethymno 43 Magnisia 18 Drama 44 Trikala 19 Evros 45 Achaia 20 Kavala 46 Aitoloakarnania 21 Rodopi 47 Ilya 22 Xanthi 48 Florina 23 Arta 49 Grevena 24 Ioannina 50 Kastoria 25 Preveza 51 Kozani 26 Thesprotia (a) Aghio Oros The geographical allocation of the prefectures can be seen in the picture below. Figure 2: Geographical allocation of the Greek Prefectures 10

11 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 The Prefectures are further subdivided into 900 municipalities and 133 communities. Moreover, according to Regional Solid Waste Management Plans (RSWMP), each Region is divided into Administrative Areas, which sometimes happen to have the same geographical borders as the Prefectures. In most cases though the Administrative Areas and Prefectures are not in alignment. For example the Region of Central Greece consists of five Prefectures, but the total number of the Administrative Areas is eleven. In total, Greece is divided into 104 Administrative Areas in relation to RSWMPs. In addition to the above, for the implementation of the country s development planning during programming period , Greece was divided into five Regional Operational Programmes (R.O.P.), based on the 13 Regions as follows: a) R.O.P. of Western, Central Macedonia & Easter Macedonia-Thrace b) R.O.P. of Western Greece, Peloponnese & Ionian islands c) R.O.P. of Northern, Southern Aegean & Crete d) R.O.P. of Thessaly, Central Greece & Epirus e) R.O.P. of Attiki The geographical allocation of the above-mentioned R.O.Ps can be seen in the picture below. 1. R.O.P. of Attiki 2. R.O.P. of Macedonia & Thrace 3. R.O.P. of Thessaly, Central Greece & Epirus 4. R.O.P. of Western Greece, Peloponnese & Ionian islands 5. R.O.P. of Aegean & Crete Figure 3: Geographical allocation of the Greek R.O.Ps 11

12 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part POPULATION Population censuses in Greece take place the first year of every decade. According to the 2001 census (data sourced from National Statistical Service of Greece) the population of Greece was 10,964,020, around 675,000 more than the 1991 census (6.56 % increase). Greece has received a large number of immigrants since the early 1990s. More specifically, the 2001 census revealed that 797,091 foreigners lived permanently in the country and comprised 6.95% of the total population, while their number in 1990 was 142,367. During that time period ( ), the population increase due to births was around Greek population in 2008 was estimated to 11,216,717 inhabitants, 43,300 more than the 1st of January 2007, according to data published by Eurostat (2009). The population increased again mainly due to immigration. The total number of immigrants was 41,000 while the population increase due to births was around 2,300. According to Eurostat estimations as of January 2009 gave the number of 11,263,216 inhabitants in the Greek peninsula. In the next table, the total population for Greece is presented. Table 2: Greek Population over time Year Population ,740, ,258, ,964, * 11,263,216 Source: National Statistical Service of Greece 1 *Eurostat estimation 2 In the next table, the total population for every Prefecture is being presented for

13 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 Table 3: Greek Population for every Prefecture in 2001 Prefecture Population 2001 Prefecture Population 2001 Attiki 3,761,810 Grevenon 37,947 Aitolokarnanias 224,429 Dramas 103,975 Voiotias 131,085 Imathias 143,618 Evoias 215,136 Thessalonikis 1,057,825 Eurytanias 32,053 Kavalas 145,054 Fthiotidas 178,771 Kastorias 53,483 Fokidas 48,284 Kilkis 89,056 Argolidas 105,770 Kozanis 155,324 Arkadias 102,035 Pellas 145,797 Achaias 322,789 Pierias 129,846 Ileias 193,288 Serron 200,916 Korinthias 154,624 Florinas 54,768 Lakonias 99,637 Chalkidikis 104,894 Messinias 176,876 Agion Oros 2,262 Zakynthoy 39,015 Evrou 149,354 Kerkyras 111,975 Xanthis 101,856 Kefallonias 39,488 Rodopis 110,828 Leukadas 22,506 Dodekanisou 190,071 Artas 78,134 Cykladon 112,615 Thesprotias 46,091 Lesvou 109,118 Ioanninon 170,239 Samou 43,595 Prevezis 59,356 Chiou 53,408 Karditsas 129,541 Herakleiou 292,489 Larisas 279,305 Lasithiou 76,319 Magnisias 206,995 Rethymnou 81,936 Trikalon 138,047 Chanion 150,387 TOTAL *Source: National Statistical Service of Greece Generally, future population growth is difficult to predict. Nevertheless, according to Eurostat, hypothesizing a convergence scenario, Greek population over the next 20 years (starting from 2008) is predicted as follows: 13

14 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 Table 4: Prediction of Greek Population growth until 2028 (Eurostat - convergence scenario) Year Eastern Macedonia & Thrace Central Macedonia Western Macedonia Thessaly Epirus Ionian Islands Western Greece Central Greece Peloponnese Attiki Northern Aegean Southern Aegean Crete Greece ,902 1,936, , , , , , , ,468 4,062, , , ,482 11,216, ,769 1,949, , , , , , , ,078 4,087, , , ,598 11,263, ,175 1,962, , , , , , , ,712 4,110, , , ,501 11,306, ,995 1,974, , , , , , , ,508 4,132, , , ,239 11,347, ,314 1,986, , , , , , , ,574 4,153, , , ,931 11,385, ,434 1,997, , , , , , , ,654 4,171, , , ,375 11,420, ,551 2,006, , , , , , , ,680 4,187, , , ,511 11,450, ,626 2,015, , , , , , , ,632 4,200, , , ,387 11,475, ,306 2,023, , , , , , , ,948 4,212, , , ,227 11,499, ,025 2,029, , , , , , , ,175 4,221, , , ,785 11,518, ,688 2,035, , , , , , , ,413 4,228, , , ,145 11,534, ,419 2,040, , , , , , , ,590 4,234, , , ,279 11,546, ,182 2,045, , , , , , , ,905 4,237, , , ,318 11,555, ,019 2,048, , , , , , , ,309 4,239, , , ,258 11,563, ,024 2,052, , , , , , , ,597 4,239, , , ,036 11,568, ,142 2,055, , , , , , , ,839 4,239, , , ,682 11,572, ,459 2,057, , , , , , , ,963 4,237, , , ,197 11,574, ,953 2,060, , , , , , , ,082 4,234, , , ,639 11,575, ,572 2,063, , , , , , , ,338 4,232, , , ,135 11,576, ,478 2,065, , , , , , , ,311 4,228, , , ,413 11,575, ,581 2,067, , , , , , , ,258 4,224, , , ,668 11,575,013 Rate over 20 years -8.79% 6.76% -4.06% -0.67% -0.15% 12.33% 2.88% 1.25% 7.04% 4.00% % 2.21% 11.41% 3.19% 14

15 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 According to that scenario, it is expected a 6.76 % population growth in Central Macedonia, mainly due to rapid development of Thessaloniki, and a 4.00 % population growth in Attiki SOLID WASTE MANAGEMENT OVER THE PAST FEW YEARS Waste management has been recognized as one of the most severe problems within European Union. Greece, until early nineties was relying only on semi-controlled landfills. Nevertheless, during the last two decades the solid waste management in Greece has been remarkably upgraded. While it is still generally considered a major problem, now it is increasingly becoming a well-structured, organized and environmentally responsible activity with specific goals, mostly in urban areas. Regarding solid waste management it must be noted that general planning is carried out through the National Solid Waste Management Plan (NSWMP). The first waste management planning introduced in the early nineties. Next, the 1998 intermediate National Planning promoted the construction of 75 landfills in order to accept waste from 75% of the total population. Around 85% of those landfills had capacity of less than 50 tonnes per day. Moreover, in the 2000 National Planning main priority was to close down semi and uncontrolled landfills without considering the fact that waste treatment facilities would be necessary in the near future in order to divert part of the waste stream from landfills. The requirements for recycling, processing and landfilling of solid waste increased the need of an integrated planning in national and regional level, thus the need for regional planning was highlighted by the Ministry of Environment (Circular 11836/1951/ ) and was included in the 2003 NSWMP, where it was stated that RSWMP should be established by 22/12/2005. As a result, all targets set in the 2003 NSWMP, based on EU Directives, are apportioned into the 13 aforementioned Regions through the RSWMP. Nevertheless, most of the waste management systems operated in Greece are still not in full compliance with the requirements of Landfill Directive, which establishes diversion rates of biodegradable municipal waste from landfills, and the revised Waste Framework Directive 2008/98/EC, which encourages the separate collection of 15

16 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 bio-waste with a view to the composting and digestion of bio-waste. This is mainly duo to the fact that in the last two decades, and especially during the and Programming Periods, priority was given to the construction of compliant infrastructure and therefore most of the 13 Regions still lack in waste processing infrastructure. At present, there is a note of relative optimism, since most of the waste treatment facilities foreseen in RSWMPs are under planning; however funding needs are greater than the allocated funds in Programming Period. 16

17 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 2. LEGAL FRAMEWORK OF WASTE MANAGEMENT IN GREECE 2.1. INTRODUCTION Most of waste management law in Greece follows the development of European waste management law. Next, basic legal instruments on waste management in Greece, main actors and competent authorities are presented HISTORICAL BACKGROUND The first waste management related legislation in Greece was the Ministerial Decision (M.D.) EIB/301/64 «on collection and disposal of waste» where the technical guidelines for collection and disposal were set. According to article 7 the provisions of the Decision could be bypassed with a Decision issued by the Prefecture. Some years later with the Legislative Regulation (L.R.) 703/1970, Law 25/1975, Law 429/1976 and Law 1080/1980 sanitary fee was based on the household surface in sq. meters, and this has not changed until today. In 1985, Law 1650 «on the protection of the Environment» established a framework of sanctions and liabilities for the protection of the environment. According to Article 12 the regional waste management (collection, temporary storage, treatment and disposal) was placed under the jurisdiction of Municipalities and Waste Management Authorities (WMA). The EU Waste framework Directive was transposed into domestic law in 1986, through the Joint Ministerial Decision (J.M.D.) 49541/1424/1986 (not valid) on «Solid waste in conformity with Directive 75/442/EEC» and for the first time the basic principles for environment and public health protection together with the necessity for waste management plans were introduced in the legislative framework. The J.M.D. also: Contained definitions for waste management relevant terms Named the competent authorities for waste management Regulated solid waste management permissions for legal or natural persons (apart from municipalities) Contained regulations for industrial waste 17

18 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 In 1996, J.M.D /1424/1986 was replaced by J.M.D /824/1996 (not valid) on «Solid Waste Management» was published were the responsible parties for issuing and implementing waste management plans were named. Those were the Prefectures or the Region, if the Prefecture could not fulfill that task. Great importance was given to sanitation of disposal sites and to the restoration of uncontrolled dumpsites. The European Waste Catalogue was attached to the J.M.D.. In the same year the Ministry of Environment issued a circular that explained in detail what the contents of the application file, concerning the use of a location for the construction of a waste management facility, should be. One year later with the J.M.D /97 (not valid) «on National Waste Management Planning» and the J.M.D /97 «on technical specifications and general plans for solid waste management», the legal framework concerning solid waste became more specific. Some years later the Law 2939/2001 «οn packaging and recycling of packaging and other products - Establishment of the National Organization for Recycling of Packaging and other Products» sets the legal framework for recycling of packaging waste and other products and the Direction 94/62/EEC is transposed into national Law. Presidential Decrees (P.D.) were issued that set management targets for every waste stream. So far the P.D. s 82/2004, 109/2004, 115/2004, 116/ /2004 και 15/2006 for used oils, tires, batteries, end of life vehicles and waste electrical and electronic equipment have been issued. In 2003 J.M.D /2031/2003 concerning healthcare waste was published. Accordingly healthcare units have to issue rules of procedure concerning hazardous medical waste. In the same year the J.M.D /2727/2003 «on measures and terms for solid waste management - national and regional planning management», in complete compliance with the European Waste Framework Directive 91/156/EEC is issued. Basic principles and targets for solid waste management together with the specifications for national and regional planning are set there. The most recent legislative regulations are J.M.D /725/2006 for hazardous waste, the MD 8668/2007 on the approval of Hazardous Waste National Planning 18

19 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 and the Law 3536/2007 were the legal form of Waste Management Authorities is defined. During 2009 the M.D /09/2009 on measures and terms on port reception facilities for ship-generated waste and cargo residues in compliance with the provisions of the Directive 2007/71/ΕC was published BASIC LEGAL INSTRUMENTS ON WASTE MANAGEMENT IN GREECE The basic current acts in force on Waste Management in Greece are: 1. Solid Waste Management Planning J.M.D /2727/2003 on «measures and conditions on solid waste management - National and Regional Management Plan» 2. Non Hazardous Solid Waste (includes MSW) J.M.D /1997 «Establishment of a framework of technical specifications and of general plans of solid waste management» M.D /3508/2002 «On measures and terms for landfilling of waste» J.M.D /1117/2005 «On measures and terms for the prevention and reduction of environmental pollution and the incineration of waste» J.M.D. 4641/232/2006 «Establishment of technical specifications of small landfill sites on small islands and isolated settlements» 3. Packaging waste and other special streams Law 2931/2001 «Οn packaging and recycling of packaging and other products - Establishment of the National Organization for Recycling of Packaging and other Products» and associated Presidential Decrees. J.M.D. 9268/469/2007 «Amendment of 2931/2001 about quantitative national targets for recover and recycling of packaging waste» 4. Hazardous waste M.D. 8668/2007 «Approval of the hazardous waste national plan» J.M.D /1159/2006 «Concerning the establishment of general technical specifications of hazardous waste management». J.M.D /725/2006 «On measures, terms and restrictions concerning hazardous waste management» 19

20 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 5. Medical Waste. J.M.D /2031/2003 «on measures and terms concerning healthcare waste management». Next, the key points of the aforementioned acts, are briefly presented Solid Waste Management Planning As stated, planning operates at two levels. Firstly, the National Waste Management Plan, annexed to the 50910/2727/2003 Joint Ministerial Decision on «measures and conditions on solid waste management - National and Regional Management Plan», which sets out the general priorities in relation to waste management. The operational plan, however, is set at the regional level. J.M.D on the management of waste, transposed Directive 2006/12/EC (replaced by the Directive 2008/98) into the national legislation. It comprises to the following basic axes: Adaptation and approval of the National Solid Waste Management Planning so as to incorporate the major principles, goals, policies and actions for the rational management of urban wastes, according to the community legal framework and arising national obligations; Establishment of the Regional Solid Waste Management Planning as the executive action plan in the area of solid waste management, with specifications and goals in consistency with those of the National Planning. The objective of the RSWM Plan is to specify the general directions of the National Plan and identify priorities and measures to be taken at the regional level by Regions, Prefectures and WMAs. In the aforementioned J.M.D. the national targets regarding solid waste management are set in order: To ensure a high level of protection for the environment and public health To conserve natural resources, water, energy and earth surface To reduce the air emissions contributing to the greenhouse effect 20

21 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 To expand the life span of sanitary landfills To ensure that final disposal of waste will not pose a threat to future generations Solid waste management is governed by the following principles: Prevention of waste. The polluter pays. Proximity of disposal sites to the sites/sources of waste generation. The hierarchy in the waste management sector according to the NSWMP consists of three actions, as following: 1. Prevention or minimization of waste production (quantitative minimization) as well as the minimization of the waste content in hazardous substances (qualitative minimization) 2. Utilization of waste (recycling and energy recovering) 3. Safe final disposal of residues According to the J.M.D., the NSWMP will be revised every five years and will be published after common approval from the Ministries of Interior, Environment, Health and Agriculture, after consulting with the Central Unions of Municipalities & Communities of Greece (Greek abbreviation: KEDKE) and the Central Union of Prefectures of Greece (Greek abbreviation: ENAE). If necessary the revision can occur earlier than the five years in order to confront with urgent changes in the waste management sector. Those can be changes due to: a) the promotion or implementation of European or international programs, b) to legislation amendments, c) natural or other disasters or d) unforeseeable problems during the construction of MSW facilities. Moreover, J.M.D sets the targets for diversion of biowaste, in accordance with the Council Directive 1999/31/EC of 26 April More specifically the J.M.D sets the following targets: 21

22 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 In 2010, BMW going to landfills must be reduced to 75 % of the total amount of BMW produced in 1995, for which standardised Eurostat data are available; In 2013, BMW going to landfills must be reduced to 50 % of the total amount of BMW produced in 1995 for which standardised Eurostat data are available; In 2020, BMW going to landfills must be reduced to 35 % of the total amount of BMW produced in 1995 for which standardised Eurostat data are available. Regarding packaging waste, J.M.D. sets quantitative national targets based on Law 2931/2001, however these were amended by J.M.D. 9268/469/2007. Finally, the J.M.D. determines the obligations of the WMA and the Regions, regulates the permits of waste management operators and sets a time limit for the eradication of uncontrolled dumping Non Hazardous Solid Waste Regarding non hazardous waste (that includes MSW) treatment and disposal, the most important statutes and the way they affect strategic decisions in handling solid waste are described in this section J.M.D /1997 on Technical Specifications «Establishment of a framework of technical specifications and of general plans of solid waste management» J.M.D determines the technical specifications regarding the appropriate systems, means and procedures for each of the available waste treatment methods (like temporary storage, collection and disposal, collection at source, recycling etc.) and it also specifies the criteria for the selection of landfills, as well as for the planning, design and function of Sanitary Legal Waste Disposal Sites, mechanical sorting plants and composting facilities. Specifications on compost products are also included. J.M.D 29407/3508/2002 on Landfilling of Waste «On measures and terms for landfilling of waste» 22

23 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 Through the aforementioned J.M.D., the Directive 99/31/EC on the landfill of waste was transposed into the Greek legislative framework. The main elements introduced with the J.M.D. are: Waste must be treated before landfilled, Stricter operational rules for sanitary landfills Changes regarding gate fee for landfilling were introduced, Requirements for the landfill operating authorities where established Planning and permitting procedure were changed Those requirements aim to promote the construction of high standard landfills which will gradually be turned into residue landfills. Regarding gate fee, costs of financial security, final closure and after-care have to be included. Moreover, Article 12 of J.M.D requires that the costs for operation and extension works of landfills is covered by the price charged by the Waste Management Authorities (via Municipalities) for the disposal of waste. J.M.D /1117/2005 on Waste Incineration «On measures and terms for the prevention and reduction of environmental pollution and the incineration of waste» The J.M.D. was published in order to transpose Directive 2000/76/EG on waste incineration into national legislation. The J.M.D. aims to reduce and prevent environmental impacts deriving from waste incineration. In order to achieve that: Certain technical specifications for the design, construction and equipment of incineration facilities are given; Emission limits for certain pollutants released into air or waster are set; The procedure for waste acceptance in the facility is defined; Equipment needs to be installed in order to monitor operating parameters, flue gas emissions, and heavy metals; The conditions in order to approve the environmental terms of the facility are defined. 23

24 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 J.M.D. 4641/232/2006 on Small Landfills «Establishment of technical specifications of small landfill sites on small islands and isolated settlements» This J.M.D. sets the technical specifications for landfills usually found in small islands or small settlements Packaging Waste and Special Streams Regarding special streams, Law 2931/2001 «on packaging and recycling of packaging and other products - Establishment of the National Organization for Recycling of Packaging and other Products» and associated Presidential Decrees for the recycling of packaging waste, transposing Council Directive 94/62/EC on packaging waste and related Directives on other wastes, i.e. used tyres, end-of-life vehicles, waste oils, electrical and electronic waste, waste batteries and demolition and construction waste. For the above waste streams, the following Presidential Decrees have been issued: Oil wastes (Presidential Decree 82/ O.J.G. 64A/ ); Used batteries and accumulators (Presidential Decree 115 / O.J.G. 80A/ ); Used vehicle tires (Presidential Decree 109 / O.J.G. 75A/ ); Used electric and electronic equipment (Presidential Decree 117 / O.J.G. 82A/ ); End-of-life vehicles (Presidential Decree 116 / O.J.G. 81A/ ); Excavation, construction and demolition wastes (Presidential Decree under publication). The Law obligates the economic actors (producers, importers) to organize or participate in collective (or individual) recycling schemes (i.e. return, collection, transportation and recovery systems) in order to achieve specific quantitative targets. Schemes, have to be approved by the Ministry of Environment and are funded through the corresponding producers. 24

25 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 Responsible for the monitoring of the management of specific waste streams is the National Organization for Alternative Management of Packaging and other Products (Greek abbreviation: EOEDSAP). In 2008, P.D. 99/2008 on «establishment, structure and operation of the National Organization for Recycling of Packaging and other Products - Financial Management and Procurements of the Organization» which describes the exact operation terms of the Organization, was adopted. The management board consists of 15 persons and is established by a Decision issued by the Minister of environment. The responsibilities of the board are laid down in this Decree. The Organization is divided in the Directorate of Finance and Administration and in the Directorate of Recycling. The terms for tender procedures and procurements of the Organization are also contained in the Decree. For the time being (2009) monitoring of Recycling Systems is assigned to the Direction of Recycling of the Ministry of Environment. Packaging Waste According to Law 2939/01 «packaging is every product, manufactured by any kind of material raw or secondary that is used to contain goods in order to protect, move and distribute them from the producer to the final consumer». Moreover, the packaging waste management responsibility lies with producers according to the Extended Producer Responsibility (EPR) strategy. EPR uses political means to hold producers liable for the costs of managing their waste and end of life products. More specifically, Law 2939/01 obligates the economic actors (producers, importers) to organize or participate in collective (or individual) systems of alternative waste management (i.e. return, collection, transportation and recovery systems) in order to achieve specific quantitative targets. As a result, the Hellenic Recovery Recycling Corporation (HERRCO) was founded in December 2001 by industrial and commercial enterprises which, either supply packaged products to the Greek market, or manufacture different packaging items. The Central Union of Municipalities & Communities in Greece (Greek abbreviation: KEDKE) has a shareholding of 35% in the System s share capital. In compliance with the provisions of Law 2939/01 and in seeking to fulfill the obligations of packaging operators in an effective and cost-efficient way, HERRCO has developed and 25

26 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 implemented the Collective Alternative Management System RECYCLING (C.A.M.S. RECYCLING) and has come to an arrangement with packaging producers as stated in the legal framework, in order to ensure that packaging waste is being collected and recycled. At the same time contracts have been signed with several municipalities in order to install and expand the separation at source system of packaging material. Apart from HERRCO the following recycling systems from private companies have been also approved: Recycling system for used oil packaging (Greek abbreviation: KEPED). This system aims to collect and recover used waste oil packaging waste. During tonnes where recovered and recycled. Packaging waste management system of the Vasilopoulos S.A. (M.D , OJG 1108Β/ ). This system has recovered and recycled tonnes of private label packaging waste and an additional tonnes of other packaging waste. Collection system based on the establishment of «Refund Recycling Centers». Those centers accept and sort the materials and provide a small financial compensation. The Central Union of Municipalities and Communities of Greece is also participating in that system and it will function in a supplementary way to the system of HERRCO. In January 2007 the J.M.D. 9268/469/2007 (harmonization with Directive 2004/12/EC) adopted new recovery and recycling targets for packaging waste as following: No later than 31 December 2011, 60% as a minimum by weight of packaging waste will be recovered or incinerated at waste incineration plants with energy recovery No later than 31 December 2011, the following minimum recycling targets for materials contained in packaging waste will be attained: (i) 60% by weight for glass; 26

27 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 (ii) 60% by weight for paper and board; (iii) 50% by weight for metals; (iv) 22,5% by weight for plastics, counting exclusively material that is recycled back into plastics; (v) 15% by weight for wood. Special Streams Special streams include, Batteries, End of Life Vehicles (E.L.V.), Waste Electrical and Electronic Equipment (W.E.E.E.), Used Tires and Used Oils. Extended producer responsibility schemes have been set-up in Greece for special waste streams, an overview of which is provided in the paragraphs below. End of Life Vehicles (ELV) The term of End of Life Vehicle refers to every vehicle that can be classified as waste meaning that its owner is willing or intends or is obligated to dispose it. The following categories of vehicles can be defined as End of Life Vehicles: Vehicle that its owner intends to dispose Abandoned vehicle that has been declared as waste Vehicle that is partially or totally destroyed Vehicle that does not fulfill legal and technical requirements P.D. 116/2004 «On measures and terms for recycling of end of life vehicles» describes the operation of ELV management schemes and the obligations of owners, producers, collectors and other persons involved in the ELV market. According to the P.D. 116/2004 following targets are set: No later than 1 January 2015, for all end-of life vehicles, the reuse and recovery shall be increased to a minimum of 95 % by an average weight per vehicle and year Within the same time limit, the re-use and recycling shall be increased to a minimum of 85 % by an average weight per vehicle and year. 27

28 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 The national management scheme for ELV (Greek abbreviation: EDOE) was approved by the Ministerial Decision (M.D.) / (907Β/ ) and its operation is governed by the regulations of Law 2939/2001 and Presidential Degree (P.D.) 116/2004. Owners of E.L.V. are obliged to hand them in designated collection points or authorized treatment facilities without being charged since there is no market value for the vehicle. Given that many E.L.V. owners abandon their cars in parking places, EDOE is cooperating with local authorities who collect these vehicles. Waste Electrical and Electronic Equipment (W.E.E.E.) W.E.E.E. management in Greece is governed by the regulations of Law 2939/01 and P.D.s 117/2004 and 15/2006. With these Decrees the Directives 2002/96/EC on waste electrical and electronic equipment and 2002/95/EC on the restriction of the use of certain hazardous substances in electrical and electronic equipment were transposed into the national legislation framework. The term electrical and electronic waste refers to a wide spectrum of materials and is one of the most complicated solid waste streams due to the variety of raw materials it contains and to the many different types of electrical devices that be found in the market. P.D. 117/2004 classifies W.E.E.E. according to its origin source in the following categories (based on Directive 2002/96/ΕC): Large household appliances Small household appliances IT and telecommunications equipment Consumer equipment Lighting equipment Electrical and electronic tools Toys, leisure and sports equipment Medical devices Monitoring and control instruments Automatic dispensers The recycling/recovery targets set for each category are: (a) For W.E.E.E. falling under categories 1 and 10 of Annex IA, 28

29 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 the rate of recovery shall be increased to a minimum of 80 % by an average weight per appliance, and component, material and substance reuse and recycling shall be increased to a minimum of 75 % by an average weight per appliance; (b) For W.E.E.E. falling under categories 3 and 4 of Annex IA, the rate of recovery shall be increased to a minimum of 75 % by an average weight per appliance, and component, material and substance reuse and recycling shall be increased to a minimum of 65 % by an average weight per appliance; (c) For W.E.E.E. falling under categories 2, 5, 6, 7 and 9 of Annex IA, the rate of recovery shall be increased to a minimum of 70 % by an average weight per appliance, and component, material and substance reuse and recycling shall be increased to a minimum of 50 % by an average weight per appliance; (d) For gas discharge lamps, the rate of component, material and substance reuse and recycling shall reach a minimum of 80 % by weight of the lamps. Producers of Electric and Electronic equipment sign the Entry Agreement, regularly declare the quantities of products marketed in Greece and pay the legally required financial contribution to "Appliances Recycling S.A.". The scheme also cooperates with local authorities in order to set collection points for citizens. W.E.E.E. can be transferred directly to the Corinth processing facility or stored temporarily. It must be mentioned that local collectors are trading useful materials contained in W.E.E.E. and an initiative should be taken in order to associate them to the scheme. Used Tyres Current legislative statutes forbid the landfilling of used tires. According to Law 2939/01 and P.D. 109/04 «on measures and terms for recycling management of used tires», tire producers are obligated to create or participate in recycling schemes for used tires. The operation of those schemes together with the obligations of all stakeholders involved in tire management is described in the P.D. Owners or final users of used tires are obliged to hand them to collection points or approved management schemes. According to the P.D. 109/2004 following targets are set: 29

30 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 no later than July 2006 to recover 65% of the total amount of used tires produced no later than July 2006 to recycle 10% of the total amount of used tires produced Current legislative statutes forbid the landfilling of used tires. According to Law 2939/01 and P.D. 109/04 tire producers are obligated to create or participate to recycling schemes for used tires. Owners or final users of used tires are obliged to hand them to collection points or approved management schemes. The competent scheme called Ecoelastika S.A. begun its operation in in the Prefectures of Voiotia and Fthiotida. In Greece recycled tires are used mainly for construction of sport facilities and construction of rubber wheels for waste bins. Construction and Demolition Waste (C&D) The term construction and demolition waste refers to a wide variety of materials that can be divided into four main categories depending on their source of origin: Excavation materials Road construction waste Demolition waste Construction Site waste No organized network for the management of construction and demolition waste exists in Greece. Actions towards recycling and recovery are not frequent and depend totally on the site manager. Mainly useful materials like cables and glasses are recovered while the inert waste is used for the restoration of old quarries. A Presidential Decree that will regulate C&D waste is under publication. Batteries P.D. 115/2004 «on measures and terms for recycling of batteries and accumulators», sets the measures, terms and general directions for the operation of recycling schemes for batteries and accumulators. It aims to: Prevent environmental pollution 30

31 EIB Study: JESSICA instruments for SWM in Greece: FINAL Report - Part 1 To reduce the hazards due to the heavy metal content of batteries and accumulators To reduce the amount of batteries and accumulators in household waste To promote recovery and recycling To inform the public opinion To give directions regarding separate collection, temporary storage and transportation of used accumulators To collect 30% of all used batteries and accumulators and to recycle 80% of the amount collected. The competent management scheme for batteries AFIS S.A. started its operation in March AFIS has come to an agreement with importers/producers of batteries, which contribute a fee for every battery sold in the Greek market in order to cover the costs for collection, transportation, recycling and dissemination activities. Used Oils Article 17 of Law 2939/2001 describes the creation of recycling schemes for used oils. The specifications and requirements for the operation and creation of the management scheme are described in the P.D. 82/2004 «On measures and terms for the recycling of used oils» The P.D. was the driving force behind the establishment of the competent authority Greek Environmental Technology S.A. (GET) which is subsidized by the producers of lube oil in Greece according to the polluter-pays-principle. There are three responsible parties regarding used oil management: Producers of lubricant oils Importers of lubricant oils Distributors lubricant oils Those are obligated to create or to participate in recycling schemes like GET and to collect used lubricant oils in order to be processed in authorized facilities. Distributors should not distribute lubricant oils brands that are not participating in management schemes. 31