Waste Production and Management

Application Form for the European Green Capital Award 2019

7 Waste production and management

7A. Present Situation

Indicator Type of Data Unit Year of data (City of Oslo) Percentage of household waste sent to landfill 3 % 2015 Percentage of household waste sent for 57 % 2015 thermal treatment or similar recovery Percentage of organic waste collected separately (percentage of potential)  Food waste (kitchen waste) 29 % 2015  Garden waste 75 % 2015 Percentage of recycled household waste 38 % 2015 Included reuse 40 % Percentage of recycled packaging waste – 41 % 2015  glass, 57 %  metals 57 %  plastic packaging 18 % Cardboard and drink cartons are part of the 75 % 2015 paper waste collection. No separate statistics are available for these fractions, but overall results for the paper fraction is Packaging collected through deposit systems for beverage packaging**  metal (aluminum) 95 % 2015  Plastic (PET ) 95 % 2015

Percentage of recovered packaging waste* 100 % 2015 Amount of Household Waste generated per 342 kg 2015 capita Amount of Municipal Waste generated per capita*** * All packaging waste in Oslo is either collected separately or as part of residual waste which is sent for incineration. No packaging waste is sent to landfill. The energy recovery rates for district heating produced from the two incineration plants in Oslo are 94,5 % and 93,1%. ** PET bottles and aluminum cans are collected through a separate deposit system in Norway, hence also in Oslo. In total – 7.000 tons aluminum and 20.200 tons PET was collected through this system in Norway. 108 million bottles and cans were collected in 2015, ca. 160 units per capita (7D19). *** According to Norwegian law, municipal responsibility for waste handling concerns household waste only (D26). Neither the City of Oslo, nor Statistic Norway has statistics for Municipal waste generated in Oslo. Statistic Norway delivers a report on the generation of Municipal waste on a national level to EUROSTAT, but this statistic is not broken down on city level.

Application Form for the European Green Capital Award 2019

Waste strategies and plans in place The current waste management plan was adopted by the City Council in 2006 (7D4). A new waste management strategy for 2016-2025 has been subject to public consultation and will be forwarded for political processing in spring 2017. See Table 7.1 for all plans. Table 7.1: Current waste policy frameworks, waste-related contents and status of implementation

Document name Waste-specific content Status GENERIC Urban Ecology “Oslo must have a cycle based waste Continuous Programme 2011-2026 management system”. Includes waste adoption/reporting (UEP) (7D1) prevention, re-use and material recycling. Action Plan for the The annual political priorities, e.g. “partnership Continuous Environment and Climate with the industry on food waste reduction”. adoption/reporting 2013-2016 (APEC) (7D2) The 2015 Municipal Master Key priorities in all municipal sectors Fundamental regulation Plan, Oslo Towards 2030 - Smart, Resilient and Green (7D3) WASTE SPECIFIC Roadmap for initiatives/investments. Measures All implemented. Some Waste Management Plan that promotes advancement of the waste initiatives to be completed. 2006-2009 (WMP) (7D4) hierarchy Public consultation Waste Management Our vision is 100 % re-use and recycling (zero undertaken summer 2016. Strategy 2016-2025 (7D5) waste). Political Decision in City Council spring 2017 Municipal Waste Strategy Unofficial working document for the Agency for Continuous for Oslo 2011-2014 (WS) Waste Management Avfallsforskriften (7D27) National regulations relating to the recycling of National regulation waste, 2004 (D27)

The Pollution Control Act Central Act of 13 March 1981. No.6 Concerning National regulation (7D26) protection against pollution and waste.

Waste prevention measures Oslo works continuously to promote the waste hierarchy and waste prevention is embedded in the waste policies. In 2015, each person generated 342 kg household waste, decreasing from more than 400 kg per capita in 2005. Some specific waste prevention measures are:

 Cooperation to reduce food waste (figure 7.1)  Awareness raising among school children (figure 7.1)  Incentives to promote the use of cloth diapers (EUR 110 per child) (7D33)  Communication campaigns and public seminars, e.g. during Reuse Week (7D13) and Oslo Week for Waste Reduction (7D14).  Preparation of a strategy to reduce consumption (7D7).

Application Form for the European Green Capital Award 2019

Aiming to reduce food waste, the City has partnered with the Confederation of Norwegian Enterprise (NHO) achieving a national reduction of 12% since 2010 (7D8). New initiatives include cooperation with citizen organisations. A Food central in Oslo collects groceries from grocery stores and distributes food to disadvantaged groups. In 2015, 800 tons of food was distributed through 60 organisations, securing 1.6 million meals and climate gain of 1500 tons of CO2 equivalents (7D9).

Figure 7.1: Left: “Skolestua” is a visitors and learning centre for all 4th graders in Oslo’s primary schools. Right: Food waste prevention campaign in collaboration with The Confederation of Norwegian Enterprise (NHO): “Take care of your food, its gold!”

Reuse and repair

Oslo has reuse facilities at all recycling stations. In 2015, approximately 900 tons of re-use items were collected by non-profit organisations (7D10). A reuse-community center has been established in the Alna District (figure 7.2), promoting reuse and repair. In June-September 2016 more than 2700 persons visited the center and more than 3100 kg of items were re-used (7D11). The recycling stations provide work training and two of them have facilities for teaching and seminars.

In the City there are over 350 curbside return points for collecting clothes which are donated to two non-profit organisations. Over 3700 tons of textiles were collected in 2015 (7D11). In 2016, the Textile Campaign was organized to promote reuse and repair of clothes (7D12). The City also supports flea markets by free delivery of leftovers and collaborates with a non-profit organisation to reuse office furniture from public offices. The city started a collaboration for reuse of EE waste (household appliances) in 2015 (7D10).

Application Form for the European Green Capital Award 2019

Figure 7.2: Above: The City promotes reuse to youngsters during Øya music festival. Below: Reuse gathering at the community center Lindeberglokalet.

Application Form for the European Green Capital Award 2019

Waste collection system in Oslo Oslo has a cycle-based waste management system. Household waste is separated at source and collected according to waste type, with the aim of acquiring clean waste streams for recycling. Food waste and plastic packaging is source separated by the citizens in green and blue plastic bags. The sorting facilities optically recognize the colors and the green and blue bags are separated from residual waste. The collection system covers all citizens. Figure 7.3 shows the overall picture for different collection systems for household waste, and figure 7.4 gives a detailed overview of the collection and recycling/recovery systems.

Figure 7.3: Percentage of waste collected via multiple systems. Source: Agency for Waste Management.

Treatment of the separately collected wastes

Plastic, glass and metals packaging, as well as Electrical waste (WEEE), are recycled through Extender Producer Responsibility (EPR) systems. Waste fractions like metals, paper, hazardous waste etc. are recycled or recovered through contracts with industrial partners.

Organic waste collected separately

In 2015, the collection rate for food waste was 29% or 25 kg food waste per person (7D11). Oslo’s target is to collect 50 kg/year/cap food waste in 2018 (7D6). 15.300 tons (27 kg/year/cap) of garden waste was collected through recycling stations (7D11). Food waste is treated at the City-owned biogas plant with a capacity of 50.000 tons of food waste (7D15, 7D29). Food waste is turned into biogas for buses and waste trucks in Oslo. All waste trucks and 12,5% of the buses in Oslo use biogas (7D23). Liquid fertilizer from the biogas production is used by local farmers. Garden waste is composted and sold to citizens as garden soil (7D32). No biodegradable waste is sent to landfill (prohibited in Norway since 2009 (7D27)).

Application Form for the European Green Capital Award 2019

Figure 7.4: Collection/recycling/recovery system, including door side collection; recycling stations; return points for hazardous waste (40), textiles (350), and glass and metal (900); and collection of specific fractions.

Application Form for the European Green Capital Award 2019

Efficient energy recovery Oslo’s two waste-to-energy incineration plants generated 905 GWh of district heating energy and 140 GWh of electricity in 2015 (7D15). The energy recovery rates for district heating produced from the two incineration plants are 94,5% (Klemetsrud) and 93,1% (Haraldrud). The district heating produced at these two plants cover 160.000 of citizens or 20% of all heating demand in Oslo (7D15, 7D16).

“Polluter pays” principle and “pay as you throw” (PAYT) initiatives Waste handling is fully financed by citizens as a non-profit service. PAYT is applied as household charges and depend fully on bin size, beginning at EUR 443/year for 140 liter-bins with weekly collection. Paper door side collection and use of delivery facilities for separated waste is free.

Recycling in municipal agencies Municipal agencies are responsible for their own waste generation and handling. 85% of municipal agencies have recycling facilities (indicator 12).

Application Form for the European Green Capital Award 2019

7B Past performance Waste generation per capita has decreased in recent years, from a little over 400 kg per capita in 2005 to 342 kg in 2015 (figure 7.5). Awareness-raising, increased source separation and better recycling and reuse facilities can be part of the explanation for this change.

Figure 7.5: Household waste generation per capita for 12 common fractions. The bold numbers highlight the reduced amounts of residual waste. Source: Agency for Waste Management (7D31). Trends in waste treatment 2005-2015 (figure 7.6) Oslo has seen positive results in recycling and reuse rates from 2005-2015 achieved through:  The introduction of source separation of food-waste and plastic packaging  Increased number of recycling points for glass- and metal  The introduction of mini and mobile recycling stations. In 2014 the city reached the goal that minimum 90% of households have less than 300 meters to a recycling point (7D1).

Figure 7.6: Household waste treatment 2005-2015. Source: Agency for Waste Management (7D3)

Application Form for the European Green Capital Award 2019

Evolution of source segregated collection system Source separation of household waste was introduced in 1990 for glass packaging, paper and hazardous waste. Since then, the source separation has increased to include more than 60 different waste fractions. This includes curbside separation, collection of hazardous waste and Christmas trees and use of recycling points and recycling stations (figure 7.7). The City is continuously working to reach the full effect of the new waste management system, by facilitating for changes in practice and increasing citizens’ knowledge about recycling.

Figure 7.7: Oslo has an extensive collection system with over 60 different waste fractions. The market for waste collection Since 1991, nearly 100% of the collection of household waste has been done through public procurement. The latest call for tender was in 2015 and a new contract was initiated in October 2016. The City used an innovative procurement process where companies were invited to take part in a pre- procurement dialogue to stimulate innovation in both environmental performance and logistical efficiency. Since 1991, the number of companies submitting bids has ranged from 4 to 10.

Application Form for the European Green Capital Award 2019

Waste prevention and recycling program Supporting the extension of source separation, the City introduced campaigns to promote and encourage better waste management among its citizens with an emphasis on positive reinforcement. The campaigns include:  communication campaigns and distribution of brochures  advertising campaigns in the media and in public spaces  engaging celebrities to promote source separation  door-to-door campaigns (figure 7.8)

The long term communication strategy has four main phases: 1. Awareness raising 2. Knowledge of results and benefits of the recycling process 3. Knowledge of how the system works and its effect 4. Action –“your daily habits are the beginning of everything”

Analysis from 2016 show that the inhabitants source separated 44% of food waste, 27% of plastic, 77% of paper/cardboard/drink cartons and 62% of glass and metal (7D22). The source separation rate is lower in high rise buildings and in certain geographic areas. A door-to- door campaign was launched in 2012 visiting citizens at home and training boards of housing cooperatives (figure 7.8). Analysis shows that source separation increased after visits to housing cooperatives (figure 7.9).

Figure 7.8: Door-to-door campaign. Each night, ten employees press 65 doorbells to inform the citizens about source separation and to deliver small waste bins. In 2015, a total of 40.000 apartments were visited.

Application Form for the European Green Capital Award 2019

Started up source separation 100 84 88 90

60 55 46 50

0 2012 2016 2012 2016 Kollen BRL Skrenten BRL

Figure 7.9: Development of household source separation in two housing cooperatives; Kollen BRL and Skrenten BRL. Source: Agency for Waste Management.

Economic and regulatory instruments - household waste The management of household waste is regulated in a separate city regulation from 1984, last revised in 2012 (7D17). The regulation specifies the rights and duties of both the City and the citizens. The regulation gives the City the right to sanction citizens who do not comply with the waste management system. So far, no sanctions have been imposed. However, the City is considering this option as some housing cooperatives are failing to source separate at a satisfactory rate, even after several visits and information campaigns. A dedicated waste fee finances the City’s running of operations and allows it to make long-term investments in the waste management system.

Infrastructure for waste management The City has been involved in planning and operating infrastructure of waste management since 1900. This includes among others landfills (last closed in 2007), pig farms, composting plants, incinerators (first build in 1967), sorting facilities and recycling stations. Investments and campaigns have enabled Oslo to create new value-chains where waste is a valuable asset (7D29). In the period 2006-2016 the City invested EUR 415 millions in in-house plants for waste treatment, including optical sorting plants, biological treatment of biogas and bio fertilizers, waste-energy incineration and improved energy recovery.

Application Form for the European Green Capital Award 2019

Today the city runs in-house (figure 7.4):  Two optical sorting plants (from 2009 and 2012), separating plastic and food waste, one of which is the largest in the world.  Romerike biogas plant, with a capacity of 50.000 tons of food waste (7D18). Treatment for production of liquified biogas (LBG) and bio-fertilizer. Biogas fuels buses and waste trucks and bio fertilizers partly substitutes chemical fertilizers at nearby farms (7D29).  Two incinerator plants. Incineration of residual waste produces energy for district heating and electricity. The Haraldrud incinerator has a capacity of 100.000 tons per year (7D15). The Klemetsrud incinerator has a capacity of 310.000 tons and includes treatment of commercial waste and household waste from neighboring municipalities.

 In 2016, a pilot for CO2-capture was tested at the Klemetsrud plant (7D15, see 7D30).  Composting plant for garden waste.  Three large and eight small recycling stations. Two additional recycling stations will be opened in November 2016 and in the end of 2017.  Hazardous waste facility for receiving and sorting of hazardous waste.

Closing of landfills

The largest landfill in Norway, Grønmo, was closed in 2007.Through advanced land use restoration and gas extraction at Grønmo, the city ensures prevention of vast methane emissions, and provides a great source of natural gas. In 2015, 4,500,000 Nm3 landfill gas was extracted. This generated 3 GWh electricity. District Heating production was about 4 GWh. This equals directly avoided emissions of around 31,700 tons of CO2 equivalents (7D21).

Commercial waste

In 2013 the City became responsible for the collection of waste from all primary schools. The aim is to increase recycling of materials with a system equal to the one for households. By mid-2019, 13 different waste fractions will be used.

In 2015, the city started a pilot project for source separation in parks (7D10). The City of Oslo also offers waste collection and handling to smaller businesses. Construction and demolition waste

Application Form for the European Green Capital Award 2019

7C. Future Plans

Current targets for waste management towards a circle-based system:  50% recycling by 2018 (7D6)  All hazardous waste should be source separated and treated separately (Operational target: less than 0,14% of hazardous waste in residual waste in 2017 (7D6)).  Increase the part of the waste stream that is re-used, limited to the waste streams at recycling stations (0,8% of total waste (2,1 kg per capita) should be re-used in 2017 (7D6).)  Number of complaints should be less than 0,04% compared to number of emptied bins for household waste (7D24).

The draft Waste management strategy towards 2025 (figure 7.10, 7D5) sets ambitious targets (table 7.2) linked to a circular economy. The main elements are:  Waste generated in Oslo is considered to be a resource for use as raw material in industry through increased re-use and recycling.  Oslo should be a safe city where waste containing hazardous substances are collected separately and treated safely.  The City of Oslo should be nice and clean without littering and the citizens should source separate their waste at home, on the go and at work.  All City agencies and companies should source separate their waste and all businesses in the city will be encouraged to do the same.  Make it even easier for the citizens to source separate correctly by adjusting the waste management service to the inhabitants’ needs and household structure.  Contribute to waste prevention through public procurement, reduction of food waste and cooperation with industry and citizens.  Re-use should be a part of everyday life. The City will contribute to make re-use activities available for the citizens and for the city owned agencies/companies.  The waste management in Oslo should be climate neutral. There should be no CO2-emissions from transportation or treatment of waste.  The City of Oslo should be the driving force in regional waste treatment cooperation  Waste treatment should be regarded as important infrastructure in the City and, therefore, be a part of all planning for city development.

Figure 7.10: The new Waste Management Strategy towards 2025 (7D5), “Join the circle” feeds into the circular economy, and proposes a set of ambitious goals for the City (see table 7.2).

Application Form for the European Green Capital Award 2019

Table 7.2: Objectives of the New Waste Management Strategy towards 2025

1. Circle based

1. Residual waste from households shall be reduced by a minimum of 30% per capita by 2025, compared to 2015-level. 2. Food waste from households shall be reduced by 30% by 2025. 3. A minimum of 60 % of food waste from households shall be collected and recycled by 2025. 4. A minimum of 60 % of plastic waste from households shall be recycled by 2025. 5. The municipal waste-to-energy plants shall have an energy recovery rate of minimum 95% by 2025. 6. Oslo shall be one of the cities with the most cost efficient waste management systems in Norway, by 2025.

7. Health, environment and climate

1. All hazardous waste and electric and electronic waste, shall be collected and treated safely. 2. The waste management in Oslo shall be climate neutral by 2025. 3. The number of illegal dumpsites shall be halved by 2025, compared to 2017-level. 4. A minimum of 50% of the household waste shall be collected by underground and automatic waste systems by 2030.

5. The City of Oslo

1. Residual waste from the City shall be reduced by a minimum of 30% by 2025, compared to 2015-level. 2. There shall be recycling bins in all larger parks and public spaces by 2025. 3. Residual waste from enterprises shall be reduced to a maximum of 30% by 2025. 4. By 2020 a minimum of 70% (by weight) of construction and demolition waste shall be prepared for re-use, recycled or undergo other material recovery. 5. Regional solutions for waste management shall be established by 2025.

6. Inhabitants

1. By 2025, 95% of the inhabitants will have confidence that the waste resources are properly utilized. 2. By 2025, 80% of the inhabitants shall experience that it is easy to sort waste and recycle in Oslo. 3. By 2025, 90% of the inhabitants shall know about facilities where they can deliver materials and items for reuse.

Application Form for the European Green Capital Award 2019

Figure 7.11: The City is working for a coherent system for source separations at home, on the go and at work

Sustainable consumption

A strategy to reduce material consumption is under preparation (2016), which will include measures to facilitate a sharing economy, recycling, green procurement, reuse and repair, and less food waste. A new strategy on green public procurement is also under preparation (2016). Oslo also participates in the project Transforming City Food hAbits for Life aimed at behavioral change related to reducing food waste (7D25).

Commitments and budget allocations

Waste handling is fully financed by citizens as a non-profit service. The Agency for Waste Management operates as an independent economic entity detached from the overall economy of the City. The budgets are decided by the City Council.

The Department of Environment and Transport undertakes close monitoring and imposes frequent reporting to ensure that budgets are coherent with achievements. This ensures that plans are supported by commitments and budget allocations. The performance of the waste handling is subject to audits by the Office of the City Auditor.

In the Climate budget for 2017-2020 (7D28), the city has included reduction of CO2 equivalents (ktCO2) for the waste sector; carbon capture and storage at the Klemetsrud facility; increased material recovery and increased landfill gas utilisation from Grønmo (figure 7.12).

Responsible CO reduction Sector Area Measure Funding for 2017 2 Agency/Organization 2020 (ktCO2)

Carbon capture and Carbon Capture and Storage at the 165 storage Klemetsrud waste recovery facility KEA AS KEA AS Resources Increased sorting Increased material recovery Waste Management Existing budget 0* Increased landfill gas Increased landfill gas utilisation at 8 utilisation Grønmo Waste Management Existing budget

Figure 7.12: The figure shows the part of the Climate budget 2017-2020 that is related to waste management (see 7D28 about the Climate budget).

Application Form for the European Green Capital Award 2019

Monitoring and performance evaluations

Oslo estimates the contents of the residual waste fractions, as well as “pollution” in the separated material streams in an annual “Household Waste Analysis” (figure 7.13). Oslo participates in an external benchmarking carried out by the national waste management association Avfall Norge. The results are used to improve services.

Composition of residual waste 2016

9.6 % Cardboard, paper and drinking cartons Food waste 27.3 % Plastic packaging Bags for waste Glass‐ and metal packaging Other metals 2.8 % 34.5 % Textiles Hazardous waste 1.0 % WEEE 0.9 % Garden waste 0.4 % 6.8 % In‐house flowers 9.7 % Other waste 3.3 % 1.2 % 2.6 %

Figure 7.13: Results from the Household Waste Analysis 2016. The figure shows the composition of residual waste in 2016.

EU policy on waste management and circular economy

For Oslo, the objective of the circular economy concept is to increase resource efficiency by identifying how cities can increase efforts to stimulate design, production, consumption, re - use, repair, refurbishment and recycling of existing materials and products to promote new sustainable growth and job opportunities. The circular economy has a major impact on waste management practice. Waste is no longer the end of the value chain but the start of a new value chain by transforming waste into raw materials available for European industry. Oslo wants to play a role as a spring board for innovation in production and consumption, and facilitate the development of business models that are essential for a successful transition towards a circular economy. Oslo will raise awareness of sustainable consumption and serve as a catalyst for resource efficiency. To this end, the City of Oslo has turned to Europe both to gain new knowledge and to influence the European agenda. In 2013, Oslo was formally elected chair of the EUROCITIES Waste Working Group. EUROCITIES has responded to the EU Commission initiative on the Circular Economy Package. Oslo has been a driving force developing common positions for EUROCITIES and speaking on behalf of the group.

In October 2016 Oslo was appointed coordinator of the Urban Age Partnership on circular economy.

Application Form for the European Green Capital Award 2019

7D. References

PLANS AND PROGRAMMES

1. Urban Ecology Programme 2011–2026 (English) The environmental policy of Oslo passed by the City Council. Section 4 concerns waste generation, promote re-use and recycling.

2. Action Plan on the Environment and Climate 2013-2016 (Norwegian)

3. The 2015 Municipal Master Plan – Oslo towards 2030 (Norwegian) Smart, Resilient and Green

4. Waste Management Plan 2006-2009 (WMP) (Norwegian)

5. Waste Management Strategy – towards 2025 – Draft (Norwegian)

6. The proposed Municipal Budget 2017 and the proposed Economic Plan 2017-2020 (Norwegian)

7. Platform for city government cooperation (English) Between the Labour Party, the Green Party and the Socialist Left Party in Oslo 2015-2019

ADDITIONAL INFORMATION

8. ForMat project, report 2016 (Norwegian) Collaboration with the Confederation of Norwegian Enterprise (NHO) to reduce food waste.

9. The Food central, Matsentralen (Norwegian) Non-profit organisations that distributes food.

10. Environmental report 2015 (Norwegian) Waste Management Agency

11. Production database waste treatment Agency for Waste Management

12. The Textile Campaign 2016

13. Oslo Reuse Week 2016 1) From coffee grounds to soap 2) IKEA-hacking-workshop 3) Repair with Restarters 4) Reuse notebook (Norwegian)

14. Oslo Waste Reduction Week (Norwegian)

15. Annual and environmental report 2015 (Norwegian) Waste-to-Energy Agency

16. Hafslund, district heating (Norwegian) Energy company, the City owns the majority of stocks.

17. Local regulation on waste management in Oslo (Norwegian)

Application Form for the European Green Capital Award 2019

18. Romerike, biogasplant (Norwegian)

19. Infinitum AS (Norwegian) Foundation that deposit and recycle non-refillable plastic bottles and beverage cans in Norway.

20. Technical building regulations (Norwegian)

21. Grønmo project 2016 (Norwegian) City of Oslo, Agency for Waste Management

22. Waste Analysis 2016 (Norwegian) Waste Management Agency

23. RUTER (English) Public transport company. Owned by The City of Oslo (60 %) and Akershus County Council (40 %).

24. Strategic Plan for Agency for Waste Management 2015-2018 (Norwegian)

25. TriFocal, WRAP, London (English)

26. The Pollution Control Act (Norwegian) Central Act of 13 March 1981 No.6 Concerning Protection Against Pollution and Concerning Waste. 27. National Regulations Relating to the Recycling of Waste. 2004 (English) Unofficial translation of Avfallsforskriften

28. Good Practice 1: Climate budget

29. Good Practice 4: Circular Economy in practice (English)

30. Best Practices in The City of Oslo: Carbon Capture of Non-recyclable Waste (English)

31. The City of Oslo’s Website Environmental status-waste (Norwegian)

32. Waste-to-Energy Agency, City of Oslo (English) Information on how we produce environmentally friendly energy, biogas and organic fertilizer from waste.

33. Cloth diaper incentive (Norwegian)