1. Waste Legislation and Management
in Finland
Finnish Environment Institute (SYKE)
Risto Saarinen
8.6.2011

2. 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

3. Finnish Legislative System
International National EC law
law law
Primary
Constitution law
International LAW Secondary
agreements law
Presidential Government
Decrees Decrees

4. 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

5. ANNEX I
CATEGORIES OF WASTE
Q1 Production or consumption residues not otherwise specified below
Q2 Off-specification products
Q3 Products whose date for appropriate use has expired
Q4 Materials spilled, lost or having undergone other mishap, including any
materials, equipment, etc., contaminated as a result of the mishap
Q5 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 law
Q14 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 land
Q16 Any materials, substances or products which are not contained in the abovementioned
categories.

6. ENVIRONMENTAL MANAGEMENT INSTRUMENTS
Environmental Policy
Strategy and plans
Evaluation of Laws, regulations,
the instruments COMPANY ITSELF: economic instr.
Self Monitoring,
Quality Systems, EMS,
Environmental Labels
Compliance control, Permits,
monitoring emissions, notifications, prohibitions
wastes and environment

7. Environmental permits
 Regional State  Municipal
Administrative Environmental
Agencies authorities
• Major activities: • Minor activities: Small
Paper mills, Large wastewater treatment
wastewater treatment plants, Treatment of
plants, Landfills etc. contaminated soil etc.

8. Environmental Permit Authorities
Supreme
Administrative Court
Vaasa
Administrative Court
Regional State Municipal Environment
Administrative Protection Authorities in
Agencies the municipalities

9. 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

10. Permitting procedure
APPLICATION
Negotiations
Informing the public Inspections
Complaints
Statements
Opinions
Rejoinder of
the Applicant
Permit Consideration
DECISION
Information of the Decision
APPEAL Legally valid decision
APPELATE COURTS

11. 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

12. 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

13. 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
21.6.2011
measurements, sampling, calcula
tions
• 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

14. Enforcement - measures to restore
the legal state of affairs
 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

15. 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

16. 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

17. Environmental regulation of the
Finnish industry – key elements
Photo: J. Mannio
 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

18. 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)

19. Waste hierarcy (different ways to express,
same idea)

20. 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.

21. 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

22. 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)

23. 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
21.6.2011

24. 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

25. Waste amounts in Finland (million tons per year)
Agriculture, forestry and fishery
Maa- ja metsätalous sekä kalastus
Mining
Mineraalien kaivu
Industry
Teollisuus
Energy production
Energiantuotanto
Construction
Rakentaminen
Services
Palvelut
Households
Kotitaloudet
0 5 10 15 20 25
Source: Statistics Finland

26. Number of municipal landfills
 1990 = 480
 2000 = 190
 2005 = 80
 2008 = 50

27. Alternative waste strategies 1
 ”Spread around = use”

28. Alternative waste strategies 2
 ”Encapsulate”

29. Waste treatment in Europe 2008 (all waste)

30. Waste treatment in Europe 2008 (all waste)
Incineration Disposal
Recovery

31. Waste treatment in Europe 2008 (municipal solid waste)
100%
90%
80%
70%
60%
50%
40%
30%
20%
10%
0%

32. Waste treatment in Europe 2008 (municipal solid waste)
100%
90%
80%
Recovery
70%
60%
50%
40% Incineration
Disposal
30%
20%
10%
0%

33. 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

34. Waste definition
 Facilitate material recovery by reducing bureaucracy
• By-products defined
• End-of-waste criteria defined

35. 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

36. 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.

37. Waste quality: Main opportunities and threats
Component Opportunity Threat
Organic carbon Energy and Uncontrollable
material recovery methane formation
Nutrients Recycling of Eutrophication of
nutrients for soil surface water
remediation
Metals Material recovery
Mineral compound Material recovery
Harmful Toxicity
substances
Heavy metals Toxicity

38. 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

39. Landfills of hazardous waste
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
21.6.2011
Mondo Minerals, Rikastushiekan kaatopaikka Kaavi Industry
Riikinneva, ongelmajätteen täyttöalue 1 (Pilaantuneiden maiden loppusijoitus) Leppävirta Municipality
Riikinneva, asbesti Leppävirta Municipality

40. National waste plan (2016)
Control of hazardous chemicals in waste
Substitution of Control of Risk management
hazardous hazardous and waste
chemicals in use substances in management of
recycled materials contaminated sites
Integration with Chemical policy, Soil protection policy

41. 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

42. 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

43. 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

44. 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

45. Waste paper for fibre recovery

46. Lifecycle of waste
Recovery of carton

47. 21.6.2011
Biogas production

48. Plastic part of a car
Source http://lca.jrc.ec.europa.eu/lcainfohub

49. Crushed tyres and glass
for construction layers

50. Tyres for noice control wall

51. Wastewater sludge for soil remediation
Composted wastewater sludge
for landscaping

52. WEE (waste electronic equipment) to…

53. …material recovery
Circuit board
Aluminium
Battery Cables
Berylliumoxide Plastics
Mixed steel

54. Biowaste to fuel ethanol
and fodder for animals
Farm
Food industry
ELINTARVIKE-
TEOLLISUUS
St1 station
Etanolix plant
Terminal
Absolutation

55. 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?)