Yes, it is possible, if we want it to be!

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A report of the

Inquiry of sustainable plastic materials (M 2017:06) Stockholm 2018

Yes, it is possible, if we want it to be!

Proposal for a sustainable use of plastic in Sweden

Executive summary

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The Swedish government decided on the 4^th of June 2017 to initiate the inquiry “Reduced negative environmental impact from plastic”, directive 2017:60. The purpose of the inquiry was to enhance the knowledge about, and on a scientific basis identify, the environmental issues that arise as a result of the production and use of plastic, plastic additives and the consequences of waste management and recycling of plastic.

Additionally, the inquiry set out to examine the environmental issues that arise due to increased amounts of plastic waste, which can end up in lakes and the ocean.

This executive summary has been created in 2019 so that actors outside of Sweden can get an understanding of the current use and applications of plastics in Sweden as well as the efforts currently being implemented for a more sustainable use of plastics.

Inquiry of sustainable plastic materials

The overall ambition of the Inquiry of sustainable plastic materials has been to answer the questions asked in the directive 2017:60 as well as to meet the requirements that have surfaced from other actors.

Thus, the purpose of this inquiry has been to identify the environmental problems associated with the use of plastic throughout its lifecycle and to suggest actions to reduce the negative impacts that the plastic brings with it.

To adequately answer these questions, the inquiry is separated into four main parts: Smarter use, Increased and safe recycling, Renewable materials and No littering.

All four parts are vital when striving for a more sustainable use of plastic and are of course interlinked. To reach a more sustainable use

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of plastic, the material itself needs to be used in a smarter way, which implies a reduction in unnecessary usage of plastic overall but also a shift towards applying the use of plastic material where it is more resource effective. Moreover, plastic ought to be manufactured nat- urally from raw materials that entail a low environmental impact, consequently striving for materials that are renewable and/or recycled.

The concept of circularity also necessitates that plastic should not leak out to the natural ecosystem and attention must thus be put on the end-treatment of the material/product.

As this inquiry is of importance to several different actors, not only the government, we have decided to divide up the findings in proposals for the government as well as recommendations for public and private actors. In this executive summary, both the proposals and the recommendations can be found in chapter 1 Overall proposals.

Thus, each actor can find their specific part within this inquiry and share in its findings.

Methodology

Due to the scope of this inquiry, it has not been possible to go into too much detail for each question. The point of departure has therefore been to compile and gather the available information and highlight what area/areas that require further attention.

The findings, proposals and recommendations in the inquiry are based on a literature review as well as knowledge and experience gathered from actors across the plastics’ supply-chain. The conclusions laid out in this inquiry were reached through workshops, which were organised for each of the inquirys’ main sections with over forty different organisations attending, and meetings.

Due to external factors, certain boundaries were needed to be set for actions against littering, microplastic, textiles and facing materials.

For littering and microplastic, ongoing external investigations re- sulted in this inquiry not delving too deep in these two topics while textiles and facing materials were excluded from the inquiry all together. The reasoning for the exclusion of textiles was due to the extensive work that is currently being undertaken within synthetic textiles whereas the exclusion of facing materials was decided upon to limit the scope of the inquiry.

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Finally

We would like to conclude that much work is currently being undertaken surrounding plastic and its use. Many developments have occurred throughout the course of this inquiry and many developments will continue to unfold, both nationally and internationally and amongst public and private actors.

Additionally, the inquiry wants to emphasise that to reach a circular and more sustainable use of plastic a wider collaboration among all actors, both within the same supply-chain and across sectors, is required. This will further strengthen the aim towards sustainability since knowledge-sharing and opportunities for innovation are of great importance for solving the question of sustainable plastic use.

Lastly, it has become clear that there exists a great commitment for this question. However, there is still a lot of work to be done.

The inquiry therefore wants to encourage all actors, including the government, to act and continue to work proactively within the area.

Especially now when interest for the plastic question is so great and there exists a valuable momentum to take advantage of!

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Innehåll

1 Overall proposals ... 9

1.1 Current situation abroad (chapter 3) ... 9

1.2 A smarter use (chapter 4) ... 11

1.3 Increased and safe recycling (chapter 5) ... 19

1.4 Renewable plastic (chapter 6) ... 24

2 Chapter 2 – The plastic community ... 27

2.1 Underlying fact ... 27

2.2 How the plastic waste is handled ... 28

2.3 Treatment of plastic waste and its environmental impact ... 34

3 Chapter 4 – A smarter use ... 37

3.1 Proposal for a smarter use of plastic ... 37

3.1.1 Plastic in a circular economy ... 37

3.1.2 Reduce excessive use of disposables ... 39

3.1.3 Requirements in public procurement ... 40

3.1.4 Increased and safe reuse ... 41

3.1.5 The consumer perspective ... 42

3.1.6 Privately imported goods and accompanying packaging ... 43

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Table of contents SOU 2018:84

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3.2 Choice of material from function and life-span ... 43

3.2.1 Substitution – to derive from the product’s function... 43

3.2.2 More effective use of plastic materials ... 46

3.3 Good examples for inspiration ... 47

4 Chapter 5 – Increased and safe recycling ... 51

4.1 Recycling of clean and homogenous plastic streams through mechanical recycling – problems, opportunities and proposals for improvements ... 51

4.1.1 Proposal for solutions for clean plastic streams ... 52

4.2 Recycling of problematic and end of life plastic ... 62

4.2.1 Proposal of solutions for problematic plastic ... 62

5 Chapter 6 – Renewable plastic ... 65

5.1 What is renewable plastic? ... 65

5.2 The inquiry’s proposal... 66

5.2.1 Labelling ... 66

5.2.2 Climate compensation fee ... 67

5.2.3 Mass balance for bio-based plastic ... 68

5.2.4 Efforts on research and development ... 69

5.3 Raw material from bio-based plastic ... 70

5.4 Drop-in plastic ... 71

5.5 Replacement plastic ... 71

5.6 Standards ... 72

5.7 Prerequisites for bio-based plastic ... 73

5.7.1 Exploitation of Swedish forest for plastic ... 73

5.7.2 The companies’ efforts ... 74

5.7.3 Swedish research on plastic from forest and agriculture ... 74

5.7.4 Next generation renewable plastic ... 75

5.8 Environmental consequences ... 76

5.8.1 Lifecycle analysis, LCA ... 76

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SOU 2018:84 Table of contents

5.8.2 Life-span and recycling ... 77 5.8.3 Land use ... 77 6 Appendix 4 – Littering and degradation of plastic

in the environment ... 79 6.1 Conclusions from the partial report ... 79 6.2 Littering – a sustainability problem ... 82 6.2.1 The EU’s and Sweden’s export of plastic waste .... 82 6.3 Measurements of trash ... 83 6.3.1 Methods for measuring trash on land ... 83 6.3.2 Methods for measuring marine trash ... 84 6.3.3 Littering that end up outside of

the measurements ... 84 6.3.4 Measurement results for trash on land ... 85 6.3.5 Measurement results for trash on beaches ... 86 6.3.6 Measurement results for trash on the ocean

floor ... 86 6.4 Harmfulness ... 87 6.4.1 Measurement results for trash in biota – fulmars .... 87 6.4.2 Ecological harm of littering in the oceans ... 87 6.5 Degradability of plastic in the environment... 88 6.5.1 Two groups of degradable plastic ... 88 6.5.2 OXO-degradable plastic and other plastic

with additives that promotes degradation... 89 6.6 Different plastics' contribution to littering ... 90 6.6.1 Different plastic types in the Swedish littering ... 90 6.6.2 Biodegradable plastic – attitudes and behaviours

surrounding littering ... 91 6.6.3 Attitudes surrounding bio-based plastic ... 91 6.6.4 Share bio-based plastic on the market

and in littering ... 92 Bibliography ... 93 Directive 2017:60 – Reduced negative environmental

impact from plastic

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1 Overall proposals

The overarching purpose of this inquiry has been to identify environmental problems stemming from the use of plastic, throughhout its lifecycle, and to propose actions to reduce the negative environmental impacts that plastic brings.

Through the project, we have identified four separate parts that ought to run parallel – but also need to interact with each other – for society to reach a sustainable use of plastics: Smarter use, Increase and safe recycling, Renewable plastic as well as No littering.

The proposals for actions linked to littering were presented by the inquiry in March of 2018 (see appendix 4). Proposals to the government, and recommendations that other actors can contribute with, are summarised below.

1.1 Current situation abroad (chapter 3)

A dedicated resource to drive the shift toward a sustainable use of plastic

The inquiry’s proposal: That the government appoints a national resource for the coordination of plastic issue.

Background

We see a continued demand for national coordination between all types of actors. The benefits with such a coordination are:

• A unifying point for supporting the government and authorities with input regarding political work will be established. At the same time, the opportunity is presented to share knowledge of what is currently going on in the political sphere to affected actors.

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Overall proposals SOU 2018:84

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• The question may be linked to a neutral part that has the mandate to gather actors along the value chain to drive various issues.

• The positive development that is currently occurring in the form of e.g. business initiative and active municipalities can better be unified and channelled into a more powerful transformation. The opportunity to ensure that knowledge and information is developed and shared to relevant actors increases. In Sweden, several initiatives are undergoing but need to be “packaged” and shared in such a way that an overall image emerges.

• Such a resource can also help in obtaining an overall picture of the various project initiatives and announcements that are ongoing and being stated.

• The work that a coordinated plastic resource would conduct could be called in if Sweden would want to take international action.

There are several ways forward to implement the abovementioned benefits. The inquiry highlights various alternatives, which can be carried out separately or in combination depending on the desired effect and available resources. For a wider approach, in the form of an overarching coordinating resource, the inquiry concludes that the work needs to carry on for a longer time period, tentatively three to five years, while a more limited investigation of an inquiry may be carried out during a shorter time period.

Intermediate goals for a sustainable use of plastics

The inquirys’ proposal: That the government investigates the opportunity to implement intermediate goals for a sustainable use of plastic by giving either Miljömålsberedningen, Dir. 2018:44, (a formulation introduced by the Swedish government to reach a broad coherency concerning several environmental issues) or a new committee the task to investigate this, in conjunction with the Delegation for a circular economy.

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SOU 2018:84 Overall proposals

Gathered knowledge at one place

The inquiry’s proposal: That the government gives the Swedish Environmental Protection Agency the task of supporting the appointed plastic resource with a broad, objective and knowledge- based platform.

That the government, in due time and depending on how the plastic issue develops, gives the Swedish Environmental Protection Agency a clearly designated and long-term official responsibility to systematically drive and coordinate questions linked to resource effectiveness and sustainable plastic use, in conjunction with other affected authorities and businesses.

1.2 A smarter use (chapter 4) Proposal for a smarter use of plastic Plastic in a circular economy

The inquiry’s proposal: That the government present govern- ment agencies with an obligation to prevent waste at the agency within the scope of the agencies’ environmental management system in line with what is suggested in the Report of the Inquiry on circular economy (SOU 2017:22). Additionally, we suggest that it is clarified that purchase and procurement are part of the waste preventing effort.

That the government considers a temporary economic support for municipalities with strategic work for preventing waste in the municipality’s operations in line with SOU 2017:22.

That the government assign the Environmental Protection Agency and The National Agency for Public Procurement with the task of making waste prevention manuals available on a national level and that the manuals are expanded to include more operations.

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Recommendations for public actors

• Map the operation’s plastic streams and prioritise which streams to focus on by taking in to account waste prevention efforts, stated environmental goals, and opportunities for reduced cost.

• Introduce a clearly stated policy, which specifies that waste prevention is a prioritised area and set aside resources for working preventatively with waste both within the business and through specifying requirements in public procurements.

• Take advantage of available guidance materials. For example, the City of Gothenburg have developed routines and guidelines for waste prevention in different types of sectors as well as during purchase and procurement processes¹. The material is available for other municipalities and actors. The Swedish Waste Manage- ment Association have developed a report with recommendations concerning waste prevention in public procurements (Avfall Sverige² , 2018a).

• Accomplish waste efficient events and avoid products that entail a high risk of littering, e.g. balloons and disposable plastics. The City of Gothenburg have a guide for how one may prevent waste from conferences, hotels and catering³ that is available for every- one to use. Furthermore, the City of Gothenburg will produce guidelines for disposable-free events.

Recommendations for private actors

• Review where in the operation improvements in the form of reduced and more efficient use of plastic may be implemented.

This entails both what is being produced and how it is being produced, for example in the form of an improved range of products as well as how one may encourage customers to make more

1 https://goteborg.se/wps/portal/start/kommun-o-politik/kommunens-organisation/

forvaltningar/forvaltningar/forvaltningen-kretslopp-och-vatten/vara-verksamheter/

forebygg-avfall-i-goteborgs-stad/!ut/p/z1/04_Sj9CPykssy0xPLMnMz0vMAfIjo8ziTYzcD Qy9TAy9DcwD3AwcQxwtPP1NfAw8Dcz1wwkpiAJKG-AAjgb6BbmhigCBI6k5/dz/d5/

L2dBISEvZ0FBIS9nQSEh/#htoc-8 (Visited on 2018-08-20).

2 The Swedish Waste Management Association.

3 https://goteborg.se/wps/wcm/connect/4e6f7376-ee3a-4579-b0f5-c2e8c8fce42e/F%C3%

B6rebygg+avfall+p%C3%A5+konferenser%2C+hotell+och+vid+catering.pdf?MOD=

AJPERES (Visited on 2018-08-20).

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sustainable choices. Make things easier for the customer by e.g.

removing some products, rewarding certain behaviours as well as complicating or facilitating some decisions.

• Map the operation’s plastic streams (both within the core operations and any support operations, e.g. marketing) and prioritise which streams to focus on based on stated environmental goals.

Such streams may, for example, include products that go to waste in connection with change of logotype on profile articles or plastic which tends to contribute to littering (e.g. thin plastic film surrounding straws and cigarette packages). This may also include a consideration of what packaging that is required.

• Establish goals for when: a) the use of plastic materials should be avoided, b) when recycled or renewable plastic materials ought to be used, and c) when other materials can be chosen. Clarify that renewable raw materials need not imply that plastic materials are replaced with bio-based plastic, since it may be more efficient to use a bio-based material directly instead. The use of recycled materials should also be considered. In the analysis of resource effectiveness, the opportunity to reuse and recycle the product/material should be considered. Carry out a collective economic evaluation that includes all costs and revenues when assessing the opportunities for reuse and/or alternative materials.

• Develop circular business models. For instance, there are few companies in existence that deal with the logistics concerning the logistics of washing, recycling and multiple-use for temporary and permanent food and drink services.

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Reduce excessive use of disposable materials

The inquiry’s proposal: That the government assigns all author- ities with the task to immediately review their use of disposables, as well as examining opportunities to contribute to reduced littering and reduced climate impact by replacing these disposables with multiple-use alternatives, including by certifying the operation and arranged events with the “Kranmärkt”⁴ label.

That the government assigns the Environmental Protection Agency, the Swedish Food Agency and the Swedish Institute for Infectious Disease Control the task of mapping out which areas, and to what extent, guidelines and regulations which relate to hygiene, disease control and food safety entail an excessive use of disposables, especially regarding plastic materials, and amend these guidelines and regulations as needed.

That the government assign the Environmental Protection Agency with the task of developing information and communicate said information with the purpose of making it easier for the individual and for operations to overlook their use of disposables, the functions they perform, and the opportunities to contribute to reduced littering and reduced climate impact by accommodating the same function in a different manner.

Proposal for public actors:

• Based on an overview of disposables usage, reflect on the context in which a transition from disposable to multiple use products can take place.

• Sweden has good quality drinking water and efforts should therefore be made to:

– introduce drinking water faucets or by other means promote the publics’ access to free tap water within public spaces, in- doors as well as outdoors

4 Kranmärkt is a national sustainability label for operations that chooses tap water instead of bottled water. The whole operation or individual conferences and events that the operation is arranging, may obtain the label. For more information visit: http://kranmarkt.se/english/

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– certify the operation and arranged events with the Kranmärkt label.

Proposal for private actors:

• Review the usage of disposables within the operation and limit this use.

• Make it easier for the customer to make more sustainable choices and reduce the use of disposables by e.g. introducing discounts on multiple-use cups, complicate the use of straws etc.

• Introduce drinking water faucets in the public space that is owned by private actors, e.g. in shopping malls, or by other means contribute to promoting access to free tap water for the public. For instance, the project Refill in the United Kingdom entails that the public can refill their water bottle with tap water at affiliated companies.

• Certify the operation and arranged events with the Kranmärkt label.

Requirements in public procurement

The inquiry’s proposal: That the government assigns The National Agency for Public Procurement with the task of collaborating with the Swedish Association of Local Authorities and Regions as well as municipal, regional and national purchasers and environment strategists to review whether the criteria effort for products that contain plastic can be intensified to reduce the plastics’ negative climate and environmental impacts through:

– developing criteria for more products, – increasing the pace in the criteria effort,

– ensuring that developed criteria are easy to use and

– making quality-assured examples available on their webpage.

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This ought to be done in addition to the proposals of developing criteria for recycled plastic, see chapter 5 Increased and safe re- cycling.

That the government assigns the Environmental Protection Agency with the task of reviewing opportunities to simplify and streamline public purchasers’ efforts towards the sustainable use of plastic, which also private purchasers can benefit from.

Recommendations for public actors:

• Introduce a policy that specifies that procurement for waste prevention is a prioritised area that s claim time and recourses. This can also be linked to the organisation establishing goals within the area.

• Consider what demand exists and possible alternative solutions to fulfil said demand without procuring a new product prior to the procurement of a new product.

• For each individual procurement, consider what the demand is and what is possible from a market analysis standpoint as well as how the procurement can push the market further.

• involve purchasers and staff in the operation to clarify what functions/aspects are necessary.

• if needed, investigate and utilise the opportunity to use alternative technical specifications, e.g. award criteria⁵ or special contract terms.

• Investigate the opportunity to collaborate with others, thereby generating greater procurements and increasing incentives for suppliers to meet the requirements.

Increased and safe reuse

The inquiry’s proposal: That the government acts to change the EU’s VAT Directive and that this is done in a way that supports

5 Also known as evaluation criteria.

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the EU’s ambitions of resource effectiveness and circular economy.

That the government assigns the Environmental Protection Agency and the Swedish Chemical Agency, in line with what was suggested in SOU 2017:22, the task of developing, and making available, cohesive information material to consumers and organisations regarding when it is, from an environmental and safety point of view, inappropriate to reuse certain plastic products. It ought to be made clear that such information needs to be regularly updated, since products and their qualities change over time.

Recommendations for public and private actors:

• Strengthen the second-hand market by working towards that plastic products with unwanted substances are not circulated, that product categories that are suitable for reuse have a quality that allows this (e.g. a long life-span) as well as by creating incentives for consumers and other actors to choose second-hand.

Choice of material from function and life-span

Substitution – to proceed from the product’s function

The inquiry’s proposal: That the government, through research financed authorities such as Vinnova, Formas, the Swedish Energy Association and the Environmental Protection Agency as well as strategic innovation programs for an example RE:Source, Produktion2030 and Viable cities, invest in research concerning opportunities to replace plastic with plastic as well as plastic with other materials from a climate perspective and other relevant factors with an environmental impact, e.g. recyclability. Gathered knowledge needs to be spread further to relevant stakeholders such as product designers and manufacturers.

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• Look over the use of plastics and the opportunities to switch to another material or to another type of plastic. For this, it is of importance to consider that the recycling streams must function as well and that no unnecessary “down cycling” occurs.

• Manufacturers of products can take responsibility by developing products that are in line with the principle of resource-effectiveness.

More effective use of plastic materials through the Eco-design directive

The inquiry’s proposal: That the government assigns the Swedish Energy Association the task of, within the scope of the Eco-design directive, work towards that the requirement for suppliers to digi- tally mark materials, components and products as well as to docu- ment relevant information increases with the purpose of easing future reuse, repairs and recycling of components and materials.

Such a requirement could comprise of a labelling requirement concerning, apart from input chemicals and plastic polymers, also year of manufacturing.

This ought to be done in addition to the proposals that are given in chapter 5 Increased and safe recycling.

Recommendations for private actors:

• Develop guidelines for how product design can contribute to increased reuse and recycling as well as reduced risk for the product or part of the product contributing to littering.

• Work for a harmonisation of what plastic types should be used for what.

• Look over what material that is most resource effective for the specific product including the packaging. This entails both choice of material and trade-offs between primary, secondary and tertiary packaging and the opportunity to use return boxes and return pallets.

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1.3 Increased and safe recycling (chapter 5) Proposals of solutions for clean plastic streams

Standards

The inquiry’s proposal: That the government continues to allocate resources to support the harmonising standardisation effort that aims to increase the quality of recycled plastics.

Short supply-chains and collaboration gives improved traceability The inquiry’s proposal: That the government supports collabo- ration along the supply-chain to increase and improve traceability.

This entails investigating the prerequisites:

That an increased focus is placed on concerned parties finding the clean streams that are available and that more such streams are created.

To encourage manufacturers of recycled material and products to create smaller and more controlled streams rather than attempting to gather all plastic and then sorting it.

The opportunities for labelling plastic with codes to enable the identification of various types of plastic and plastic content.

How good examples can be applied in new areas.

One opportunity is that the government conducts this within the scope of the inquiry’s proposed Gathered plastic resources.

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• To strive for an increased dialogue along the supply-chain in accordance with what we also propose for the government. It is the companies themselves that need to act to make a concrete difference. Through dialogue with other parties, many obstacles can be overcome.

• To initiate projects linked to a mutual labelling.

• To spread good examples.

Occurrence of hazardous substances

The inquiry’s proposal: That the government continues to be a driving force in the work with:

Phasing out particularly hazardous substances in accordance with the intermediate targets.

Regulating undesired substances at an EU-level. Primarily within Reach but also within the product directives.

That the government conducts a dialogue with the recycling companies and affected authorities to investigate how companies’

various demands can be met. The difference between the handling of especially hazardous substances and hazardous substances according to the intermediate targets ought to be included in this effort.

• To go beyond the legislation for phasing out undesired substances and generally consider the recyclability concerning all additives.

There exist different tools to facilitate this type of work, e.g. the Chemical Agency’s PRIO database.

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Create the demand for recycled raw material

The inquiry’s proposal: That the government investigates the possibility to introduce instruments with the purpose of creating an increased demand for recycled plastic raw materials. An investigation could, among other things, include instruments such as:

Government grants or tax deduction for the investments that are required to change the production to recycled plastic raw materials.

Economic instruments to promote the use of recycled plastic raw materials in products independent of where they are manufactured, e.g. tax/deduction on plastic products or recycling certificates.

• Through purchase, either in the role as end-user or as a part of a chain, make demands that products shall be manufactured with as large part recycled raw materials as possible. There are already several commitments from companies concerning this, which demonstrates that it is possible both from a technical and economic perspective.

Goals and voluntary commitments

• That companies make demands on recycled plastic during purchases. The companies should work especially with all the packaging that the purchased products are delivered in. A large part of companies’ waste consists of packaging and it is here that the inquiry deems that companies can make demands that the packaging shall be produced from recycled material, be recyclable and that they should be collected.

• That public actors make demands on recycled plastic during procurement.

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Increased availability of recycled raw material through Eco-design The inquiry’s proposal: That the government assign the Swedish Energy Association the task of, in collaboration with the Environ- mental Protection Agency, the National Board of Housing, Building and Planning, the Swedish Chemical Agency, the National Electrical Safety Board and the National Agency for Public Pro- curement, investigate the prerequisite for how Sweden can push for EU-criteria for design guidelines that consider the recyclability of products or product categories made from plastic. The inquiry sees a potential in using the Eco-design directive to introduce mandatory design criteria for plastic recycling.

• To prioritise recycling and recyclability within the work of product design. This means that there must be correct competences for this within the sections of the company that undertake product development and design. It also demands a collaboration with the recycling companies.

Increased availability of recycled raw material through sorting techniques and capacity

The inquiry’s proposal: That the government follows how the effort with different new sorting facilities progresses in Sweden and holds a dialogue with companies concerning the possibility to complement the sorting with washing and granulation.

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Requirements for public procurement

The inquiry’s proposal: That the government assigns the National Agency for Public Procurement in collaboration with the Swedish Association of Local Authorities and Regions to investigate the prerequisite for introducing claim criteria for recycled plastic.

These requirements shall be developed in addition to the pro- posals in chapter 4 A smarter use.

Information to the consumer

The inquiry’s proposal: That the government supports the means of informing and guiding the consumer about the environmental benefits of using recycled plastic in appropriate applications as well as the importance of handing in worn-out products to the recycling centre.

That the government, within the scope of the EU’s plastic strategy, drives the question concerning mandatory labelling of plastic products containing recycled material.

Proposal for solutions for problematic plastic Efforts on feedstock recycling

The inquiry’s proposal: That the government supports the effort to implement a plastic refinery in Sweden. Firstly, an economic investment ought to be made by the companies that will even- tually reap the benefits of the facility and receive deposition for that which will be produced. However, it may be appropriate for state aid during the planning phase to conduct preliminary studies, investigations and other smaller investments.

That the government in collaboration with the chemical companies in Stenungsund and their partner Region Västra Götaland, look over how a state aid may be developed in the best way.

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The inquiry sees a specific demand for:

More studies of plastic waste of heterogeneous streams where both process techniques and economy are considered. For this to occur, a collaboration between the companies, research institutes and academic partners needs to exist.

An independent consequence analysis that takes a wide approach and includes various possible alternatives, e.g. concerning which products that will be produced.

1.4 Renewable plastic (chapter 6) Labelling

The inquiry’s proposal: That the government instructs Ecola- belling Sweden to investigate the prerequisite for a labelling of plastic products containing bio-based raw materials.

Climate compensation fee

The inquiry’s proposal: That the government investigates the possibility to introduce a climate compensation fee on the sale of fossil plastic. Such a system ought to be technically neutral and can advantageously be introduced in steps so that it will, within a certain time-horizon, include all products.

Mass balance for bio-based plastic

The inquiry’s proposal: That the government support companies in the effort with creating an acceptance for mass balance calcu- lation for bio-based and/or recycled plastic raw material.

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Efforts on research and development

To enhance the prerequisites for renewable plastic and increase its share on the market, research and development efforts are required.

Various actors need to be involved and collaborate – chemical and forestry companies, the agricultural sector, academies and universities, authorities and so on. Research efforts for renewable plastic should also be carried out parallel with those efforts that are being made to improve upon recycling.

For instance, the inquiry sees the demand for a mapping of plastic raw materials that considers any targets concerning how much bio- based plastic that society wants to see and that includes competing uses and land use. Furthermore, the inquiry notes that background data for the various bio-based raw materials, which are required to conduct a lifecycle analysis, are in many cases insufficient.

To study the possibilities of using plastic based on residues from e.g. forestry and/or forest industry would be interesting since there exists a concern that the bio-based raw material that is currently being used primarily derives from the agricultural sector and therefore risks, in the long-term, to compete with food production.

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2 Chapter 2 – The plastic community

2.1 Underlying fact

The global production of plastic is expected to double within the next twenty years (World Economic Forum et al, 2016) with the current annual production amounting to 335 million tons of plastic, where Europe produces 60 million tons of the total (PlasticsEurope, 2017).

An important aspect of this accelerated increase is society’s shift from using reusable products to disposables, especially for packaging products. As a result, a significant increase in plastic waste has occurred during the last decades. Since plastic is extremely difficult to break down, plastic waste is accumulated in nature and especially in the World’s oceans. Currently, an estimate of over 150 million tons of plastic waste exists in the oceans. Without drastic action, there is a possibility that there will be more plastic than fish in the oceans by 2050 (World Economic Forum et al, 2016).

In 2016, the demand for plastic in Europe was 50 million tons per year with 40 percent used for packaging, 20 percent for construction materials, 10 percent for the car industry, 6 percent for electronics, 4 percent for consumer goods and 3 percent for agriculture (Plastics- Europe, 2017). The amount of plastic waste was estimated to approximately 6 300 million tons where 9 percent was recycled, 12 percent was incinerated, and 79 percent was accumulated in landfills or in the natural environment. This means that with the same rate of production and waste generation, there will be roughly 12 000 million tons of plastic waste and rubbish in landfills and the environment by 2050 (Geyer et al, 2015).

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The plastic community SOU 2018:84

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The legal border between waste and a product

How the chemical legislation ought to be applied for recycled material compared to new raw material is an ongoing and disputed question.

The recyclers often consider that material that has been recycled should no longer be considered as waste, but rather as a chemical product that consequently falls under the EU’s chemical legislation Reach (1907/2006). However, with the absence of End of Waste criteria for plastic this is no obvious conclusion, especially if it concerns material where there is a lack of knowledge concerning the content (Kemikalieinspektionen¹, 2014). The EU Commission has identified four areas that are critical concerning how chemical and waste leg- islations operate together:

1. Information about the presence of undesired substances is not easily accessible for waste handlers and recyclers.

2. Waste may contain substances that are no longer allowed in new products.

3. EU’s rules concerning end of waste is not completely harmonised, which creates uncertainties regarding how waste becomes a new material and product.

4. Rules for deciding what waste and chemicals that are hazardous is not well-adapted, which affects secondary raw materials.

2.2 How the plastic waste is handled

Plastic waste in Sweden has since 2010 remained at a relatively con- stant level of approximately 300 000 tons annually (SMED, 2012;

Naturvårdsverket², 2018). About 220 000 tons of this annual total derives from households while the remaining 80 000 tons originates from other operations. A mere 16 percent of the plastic waste become new materials according to a study by Material Economics and Åter- vinningsindustrierna (The Swedish Recycling Industries’ Associa- tion), which corresponds to 11 percent of the total usage of plastic (Material Economics, 2018). This low figure is a result of a large por- tion of the plastic waste, which is gathered for recycling, ending up

1 The Swedish Chemical Agency.

2 The Swedish Environmental Protection Agency.

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SOU 2018:84 The plastic community

in incineration or being used for energy recovery during the sorting or at a later stage of the recycling process.

Problems and prerequisites for recycling varies depending on product area. Therefore, it is important to look over the prerequisites for different product types, as well as different plastic materials, to increase recycling.

Packaging

The largest use of plastic is for packaging (PlasticsEurope, 2017).

Packaging has a rapid turnover, which means that it also makes up a large part of the plastic waste. According to the Environmental Pro- tection Agency (2018), 47 percent of the plastic from packaging was collected for recycling on the Swedish market in 2016. The majority however, went towards energy recovery and only approximately 25 percent was recycled into new plastic raw materials.

In Sweden, the packaging from households, and from some municipalities with proximity to the property collection, are collected through the Förpacknings- och Tidningsinsamlingen (a nationwide system for recycling in Sweden using recycling stations). The government decided in June of 2018 on regulation changes concerning the producer responsibility for packaging, which aims for more uncom- plicated and accessible collection systems for the households. This should clarify that the general rule for collection is that is done close to the property or in the neighbourhood.

Initiatives are also taken from several different angles to increase the amounts of plastic packaging that are recycled. One example is the Swedish Food Retailers Federation’s Roadmap with the target that all plastic packaging should be manufactured using renewable or recycled materials by 2030. However, there are only a handful of packaging made from recycled plastic that currently come into direct contact with food. According to the EU’s regulation on good manufacturing practice for materials and articles intended to come into contact with food (EC No. 2023/2006), plastic that is intended to come into contact with food must be recycled according to the EU Commission’s approved processes. PET-bottles are one example of plastic products that can be manufactured completely from recycled material.

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Although previous research demonstrates that packaging does not often contain hazardous substances (Sternbeck et al, 2016), a new European study has shown the opposite (Groh et al, 2018). Approx- imately 15 percent of the chemicals that were identified as likely to be present in plastic packaging were hazardous for the environment or for human health. A harmonised toxicity classification was missing for many of the other chemicals. The results indicate a lack of information within the substances usage and presence in products, including those that are in direct contact with food.

The construction sector

According to the EU’s Waste Framework Directive (2008/98/EG), at least seventy percent of construction and demolition waste shall be recycled by 2020 at the latest. Plastic however, is a light material that is often hidden behind the heavier materials in the statistics. This means that a focus on sorting the plastic is uncommon. Statistics from 2012 shows that the amount of unsorted plastic waste within the construction and demolition sector in Sweden is approximately 43 000 tons annually (waste that falls under the fraction flammable is not included in the statistics) of which only approximately 900 tons is sorted out for recycling (SMED, 2012). Statistics from 2016 shows an increase of approximately 60 000 tons in the amount of unsorted plastic waste within the construction and demolition sector (Avfall Sverige, 2016; SCB, 2014). Material Economics (2018) estimates that the demolition waste contains primarily PVC (45 percent) and PS and PE (25 percent each).

For waste that derives from the construction sector, it is important to distinguish in what building phase the waste originates. The content of construction waste, such as installation waste or waste that originates during renovations, is often considered to be known. There exist good prerequisites to knowing the information concerning the quality, properties, plastic material and chemical content during production and installation. This means that the disposal of these materials should be able to increase. A lot of plastic waste on construction sites originates from the packaging that the products arrive in. For instance, stretch film and shrink wrap that is primarily made from PE (LPDE). These can be recycled (Carlsson, 2002). However, few

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construction sites have the necessary sorting systems in place. There are some good examples though of systems for the recovery of installation waste, e.g. the Swedish Flooring Trade Association’s GBR floor recycling and the Nordic Plastic Group’s efforts with the collection of plastic tube waste from new construction or old tubes from renovation or demolition.

Repipe, a research project from 2017, demonstrates how a collaboration along the supply-chain can take care of waste from the installation of tubes and thus increase the recycling. During the project, actors from along the whole supply-chain were involved and three challenges for a circular system for the tubes were identified;

(1) incentives and convenience for the collection of installation waste on the construction site, (2) transportation costs and (3) the quality of the granulate that derives from the recycler.

Concerning demolition waste, the situation is quite different. The long life-span risks that the plastic demolition waste contains undesired and currently regulated substances. The Swedish Construc- tion Federation estimates that the best way of handling plastic demolition waste is through energy recovery. The reason for this is the lack of traceability of materials in older buildings. Information on what substances the old buildings contain is lacking and the previous plastic materials that were being used may today be established as being hazardous for environmental and human health. Contemporary recycling techniques may therefore not be suitable for these types of plastic (Hedberg, 2018). At the same time, different projects at Chalmers University of Technology show that too broad conclusions should not be drawn concerning plastic waste. For example, it is not possible to recycle plastics that contains flame retardants. This may be applied to a limited section of the plastic parts while several of the other parts are suitable for recycling (Liljestrand, 2018). The Norwegian Climate and Pollution Agency has also published a study that showcases that it is possible to separate the hazardous brominated flame retardant (Strååt & Nilsson, 2018).

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Vehicles

Cars and other vehicles are largely comprised of plastic and new cars tend to contain even more plastic (Stenmarck et al, 2018). The most common materials are PP and PE (40 percent), but the car industry also contains more special plastics, such as ABS, PA and PMMA (Material Economics, 2018). The car manufacturers have several obli- gations concerning producer responsibility according to the Swedish Regulation (2007:185) on producer responsibility for cars. In accordance with the regulation, the producer is responsible for ensuring that at least 95 percent of the car’s weight is reused or recycled as of 2015 the latest. Of this, at least 85 percent of the car’s weight shall be comprised of reused or recycled material. The greatest challenge is above all to increase the recycling of non-metallic materials where plastic represents the largest amount. A higher recycling could be achieved by dismantling the car parts before fragmentation. Currently in Sweden, hardly any dismantling of plastic parts occurs prior to recycling.

The research project Realize, financed through Mistra Closing the Loop, has examined the prerequisite for an increased (manual) dismantling of plastic parts (Cullbrand et al, 2015). The project reached the conclusion that it is primarily due to economic reasons that manual dismantling currently does not occur to a greater extent. Another finding was that more effective packaging of materials is necessary.

The research continues in the project Explore with the aim of further analysing the change in the future vehicle fleets’ material content and the adaptation of the recycling system that is required (Ljungkvist Nordin, 2018).

Electronics

Producer responsibility for electronics has existed in Sweden since 2001.

This is nowadays regulated through the WEEE directive (2012/19/EU), which was implemented in Sweden through the regulation of producer responsibility for electronics (2014:1075). According to the requirements, it is the producer’s responsibility to, among other things, manage the waste and design the product so that recycling and reuse is encouraged. In 2018, the changes in the regulation will enter in to effect. For instance, the categories that electronics are divided into

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will change and the producer responsibility will cover more types of electronics. Electronics are also regulated by the RoHs directive (2011/65/EU), which limits some hazardous substances that may occur in electronics and therefore also plastic in electronics.

There exist two collection systems for electronics in Sweden. El- kretsen, which collaborates with the municipalities for collection through recycling stations and in stores, and Recipo’s system of re- turning electronics in selected stores. The electronics sector in Sweden accounted for approximately 34 000 tons of plastic waste in 2010 where 50 percent was recycled, 35 percent used for energy recovery, 10 percent went to landfills and 5 percent was incinerated (Fråne et al, 2012).

Society’s consumption of electronics has grown significantly since then and during 2017, approximately 66 000 tons of plastic waste from electronics was collected (Hasselström et al, 2018).

Plastic from agriculture

For agriculture in Sweden, there is a voluntary collection system for different plastic products, e.g. silage film, created by the non-profit industry association Svensk Ensilageplast Retur AB. Their goal is that 70 percent of agricultural plastic will be collected and that at least 30 percent of the collected plastic shall be recycled. The work is non- profit and financed by a fee that corresponds to the actual costs. Of the approximately 20 000 tons that was put on the market, 17 000 tons was collected where 12 000 was silage film (Stenmarck et al, 2018).

Plastic from healthcare

A large amount of plastic disposables are being used within the healthcare sector in Sweden. There exists no producer responsibility on these products and recyclability is further complicated by the risk of contamination from pathogens. The plastic waste from healthcare is currently being sent to incineration, but the RE:Source project Håll- bar hantering av plastavfall från sjukhus (Sustainable management of plastic waste from hospitals) is examining the possibility to handle the plastic waste in a different way. It was uncovered that other countries use methods to render the waste harmless, e.g. by autoclaving and through ozone (Yarahmadi, 2018).

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Production Waste

Several manufacturers attempt to handle waste that derives from production and reintroduce it, where it is possible, into the manufacturing process. Nevertheless, challenges that hinders the recycling still exists. For instance, reprocessing of the waste may be necessary but the correct equipment may not be available on site. Chalmers Uni- versity of Technology is running a project, Cirkumat, which examines how one may ease the recycling of production waste. A collection system for 3D filament, which enables the user of a 3D printer to resend the waste to the filament manufacturer, has been developed.

The manufacturer utilises the returned waste to manufacture new filament. In contrast to the large volumes and numerous actors that are commonly required in more traditional collection systems, this system uses a shorter path where the customers often receive return packaging and instructions for how to return the product.

2.3 Treatment of plastic waste and its environmental impact

PlasticsEurope (2017) estimates that approximately 27,1 million tons of plastic waste from consumers in Europe was collected in 2016 through official collection systems. The most common methods of waste treatment were energy recovery, recycling and landfill. For Sweden, most of the plastic waste is used for energy recovery (including plastic that is collected in mixed fractions) while the amount that is sent to landfill is among the lowest in Europe (PlasticsEurope, 2017).

Plastic has a large energy content, which means that the waste is suitable for use as fuel in district heating. Energy recovery from plastic results in fossil carbon dioxide emissions to the air, but also emissions in the form of sulphur dioxide, dust and nitrogen oxides as well as the production of ash that requires waste treatment (Stockholms stad, 2017). Energy recovery from plastic is an effective way of destroying undesired additives in the plastic and preventing them from spreading to the environment.

The negative environmental impacts from mechanical recycling of plastic is often due to the high temperature that is required during the reprocessing where heavy metals, volatile organic pollutants, phthalates, PAHs as well as dioxins and furans may be released

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(Hahladakisa et al, 2018). At the same time, recycled plastic reduces the use of brand-new plastic and thus yields some environmental benefits (Stenmarck et al, 2018). Obstacles to mechanical recycling of plastic include the cheap cost of plastic raw materials (oil), the problem with pollutants in the collected waste material from plastics, the technical challenges concerning the separation of different types of plastic, the harmful additives in some plastics, and the challenge of finding cost-effective transportation (OECD, 2018a).

Another kind of recycling of plastic is feedstock recycling. Feed- stock recycling means that the long polymer chains, which plastic is made of, is broken down into its principle parts. The parts can, for example, be used to manufacture new plastic or as raw material for other chemical industries (Richards et al, 2018). This type of recycling is often energy demanding and needs various solvents. The environmental benefit depends on what the feedstock product is replacing.

Approximately 27 percent of the collected plastic waste in Europe is sent to landfills (PlasticsEurope, 2017). Sweden has introduced a ban against sending organic and flammable materials to landfills.

Despite the landfill ban, waste can still, according to the terms in the regulation (2001:512) concerning landfill of waste, be permitted to be sent to landfills in certain cases (Magnusson et al, 2016). The knowledge surrounding what happens to the plastic in landfills is limited (Adamcová & Vaverková, 2016).

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3 Chapter 4 – A smarter use

3.1 Proposal for a smarter use of plastic

The inquiry would like to highlight several areas where we can see development potential for waste preventing efforts as well as pro- longed lifecycles. Different actors can act in different ways:

• Public actors have the opportunity to act as role models when it comes to minimising and streamlining society’s use of plastic, both through proactive waste preventing decisions and through public procurement.

• Private actors can examine where within the own operation improvements may be made, what type of products the company is providing as well as how the customers may be influenced to make more conscious choices.

• Users and consumers have the opportunity to impact the development through their choices, e.g. by opting out of a certain product or by choosing a more sustainable one.

3.1.1 Plastic in a circular economy

Large volumes of plastics are used within the public sector and there is a large development potential both for reducing unnecessary use and for streamlining usage. For instance, in the collaboration project Minskad klimatpåverkan från plast i kommunal verksamhet (Reduced environmental impact from plastic in municipal operations) the municipalities Uppsala, Eskilstuna, Norrköping and Linköping have identified that the operations within their municipalities cause emissions of approximately 4 000 tons of carbon dioxide annually solely from the use of disposables made from fossil plastic (Hilding, 2018).

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A large part of the effort of streamlining the use of plastic is in changing the way we work regarding routines and behaviour.

A fundamental part of moving towards a more sustainable society is in the prevention of waste, including plastic waste. An obstacle for public operations is a lack of clear requirements from the state and a low priority from management teams (SOU 2017:22). The Environ- mental Protection Agency have developed new regulations and guidelines concerning municipal waste plans for prevention and management of waste (NFS 2017:2).

Another obstacle may be in the funding of waste prevention measures. At the present, the use of collection fees to finance waste prevention measures within the own operation is not allowed. Instead, these measures must be financed through taxes. We therefore believe, in line with the Inquiry on circular economy (SOU 2017:22), that the government ought to consider giving temporary financial support to municipalities for strategic efforts for waste prevention within the municipalities’ operations. From 2010 to 2014, municipalities and county councils could apply for energy efficiency support from the Swedish Energy Agency¹,². This support has, according to SOU 2017:22, yiel- ded good results for the municipalities and the county councils’ energy efficiency efforts. A similar support would likely aid the municipalities’

waste prevention efforts. SOU 2017:22 also suggests that the municipalities, through a clarification in the waste regulation (2011:927), should be presented with the obligation to inform citizens about how waste can be prevented. Such information, on why and how the households may prevent waste, can result in changed attitudes and consumer behaviours. To ease funding of the municipalities’ expanded responsibility for waste prevention, SOU 2017:22 suggests that the collection fee could be used for waste prevention efforts aimed at the households.

Additionally, it is suggested that the municipality is presented with the obligation of facilitating collection and sorting of reusable products.

For waste prevention in government agencies, SOU 2017:22 suggests that the organisation ought to have an obligation to prevent waste in its operation within the scope of an environmental management system. We endorse this suggestion with the addition that it

1 www.energimyndigheten.se/energieffektivisering/program-och-uppdrag/

avslutadeprogram/Statligt-stod-till-energieffektivisering-i-kommuner-och-landsting/

(Visited 2018-11-09).

2 The regulation (2009:1533) on governmental aid for energy efficiency in municipalities and county councils.

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ought to be clarified that purchase and procurement is a part of the waste prevention effort. We believe that manuals for waste prevention, including plastic waste, in the operations and during purchases and procurements should be made available on a national level as well as being expanded to cover more operations.

3.1.2 Reduce excessive use of disposables

Obstacles for an increased use of multiple-use products may comprise of an excessive fear of spreading infection or breaking e.g. hygiene and food regulations (Nielsen, 2018). However, the administration that is responsible for food control in the City of Gothenburg have reviewed this and reached the conclusion that there are no rules in the food legislation that forbids food operations, i.e. restaurants and shops, from placing the food in the customer’s brought along packaging³.

Obstacles may also be deep-rooted habits and behaviours, which are created by the access of disposables, skillful marketing, as well as convenience. Several of these factors apply to individual consumers as well as for operations (Nielsen, 2018). For instance, health care is moving increasingly towards disposables, even within areas where it is not needed. One example is Region Jönköping where it was identified that approximately 70 000 disposable plastic egg cups were used annually (Bremle, 2018).

Apart from information concerning what applies for disposables and multiple-use products in relation to hygiene, food safety and infection protection security, more fact-based knowledge and easily accessible information is needed regarding which alternatives that are most environmentally sound from relevant environmental standpoints.

The inquiry therefore believes that the Environmental Protection Agency ought to be given the task of developing and packaging, based on relevant methods and lifecycle assessments, fact-based information that is easily accessible.

3 https://goteborg.se/wps/portal/press-och-media/aktuelltarkivet/aktuellt/29760b24-b2d8-

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3.1.3 Requirements in public procurement

Public procurement in Sweden comprise of approximately 640 bil- lion Swedish Kronor each year (Upphandlingsmyndigheten, 2017).

The National Agency for Public Procurement have an important role in supporting and driving the development for an environmentally sustainable public procurement. To reach this, the agency develops methods and tools as well as produces criteria for environmentally sustainable procurements. The database on the agency’s website is an example of such a tool where one can find criteria for environmentally sustainable development. The database contains over 600 unique sustainability criteria within a dozen of product groups⁴.

Many municipal waste plans contain goals regarding the prevention of waste through public procurement, but these have turned out to be difficult to implement in the daily operations. The existing obstacles for waste prevention requirements being implemented in public procurements can be primarily summarised in four areas: knowledge, time, market and organisation (Avfall Sverige, 2018a).

The criteria effort that the National Agency for Public Procure- ment conducts is an important support for procurers, but several actors that the inquiry have been in contact with state that the criteria effort needs to be intensified. Both through new sustainability criteria being developed for new areas and an increase in the rate of updates for existing sustainability criteria. Furthermore, the actors call for more knowledge support, e.g. in the form of a clear and updated ac- counts concerning the current knowledge surrounding different types of plastic. Regarding this call for knowledge support, it can be men- tioned that RE:Source will develop a support function that can be used during public procurements. In addition, there is demand for a more national coordination, to avoid municipalities spending time and project money on work that has already been conducted. Another proposal is that the National Agency for Public Procurement aids and supports the municipalities’ efforts by establishing an inspiration bank with quality-controlled examples. For such an inspiration bank to serve its purpose, it needs to fulfil the Public Procurement Act (2016:1145) and be well-described. For instance, background documents need to be made available with the purpose of allowing others to reuse that which has already been conceived.

4 www.upphandlingsmyndigheten.se/hallbarhet/stall-hallbarhetskrav/ (Visited 2018-10-15).

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To reach a more effective procurement, from the operations’ demands, one can use client groups. A client group entails that a network is established to conduct requirement analysis, develop common norms and methods, evaluate different solutions and participate in establishing new solutions. Procurements where waste prevention criteria and desires for more circular products are established, is an area that is difficult to accommodate through normal criteria development and it is here that client groups could likely fill an important role (Dahlgren Axelsson, 2018).

The Environmental Protection Agency have, within the government mandate concerning microplastic, initiated a client group for reducing the environmental impacts from artificial grass fields⁵. This means that the Environmental Protection Agency funds the client group’s organisation as well as means for different types of preliminary studies, investigations and tests with the purpose of increasing the knowledge regarding artificial grass fields’ environmental impact and how it can be reduced. Furthermore, there are more than likely several plastic streams within the public sector that would be appropriate for a similar approach.

A client group however, does require considerable efforts from the included organisations and it can therefore be more effective with other kinds of input configurations to meet the organisations’ demands. Such inputs can comprise of tools such as guidelines and aids for calculating environmental benefits from different action alternatives, establishing networks and conducting training (Malmgren, 2018).

3.1.4 Increased and safe reuse

Swedish consumers are generally positive to both selling and buying used products (SOU 2017:22; Svensk Handel, 2017). One way of further strengthening the second-hand market can be for stores to offer an increasing number of used products parallel with brand new ones, as well as increasing the availability in inner cities and existing shopping malls. Apart from availability, consumers are also governed by price and time required. Therefore, instruments for equalising the price difference between new and repaired/used products is needed.

5 www.naturvardsverket.se/Miljoarbete-i-samhallet/Miljoarbete-i-Sverige/

Regeringsuppdrag/Redovisade-2017/Mikroplaster--kallor-och-forslag-pa-atgarder-