Action plan on circular food loss and residual biomass flows 2021-2025 (Flanders)

ACTI ON PLAN CIRCULAR
FOOD LOSS AND
BIOMASS(RESIDUAL)
FLOWS 2021 -2025

www.ovam.be
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ACTION PLAN CIRCULAR FOOD
LOSS AND BIOMASS(RESIDUAL)
FLOWS 2021 - 2025

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DOCUMENT DESCRIPTION

1 Title of publication:

Actionplan circular food loss and
biomass(residual)flows 2021-2025

2 Responsible editor:

OVAM

3 Legal Depot number: D/2021/5024/
4 Key words : Prevention, food loss,
valorisation, biomass, residues, policy,
circular economy, recycling, material,

bio-economy
5 Summary:

This action plan will encourage the prevention, the separate collection and recycling of food
loss and biomass residues in order to a.o. reduce costs and resource use. This plan offers a
framework for the government and stakeholders to close the loop of food loss and biomass
(residual) flows and to reach the Flemish and Europ ean targets in the period 2021-2025.
6 Number of pages: 158 7 Number of tables and figurs : 2 tables, 25
figurs
8 Date of publication: 23/04/ 2021 9 Price*: /
10 Workinggroup:
platform food loss and biowaste

11 Contactpersons:

Ann Braekevelt and Nico Vanaken (OVAM)
Kris Roels (department of Agriculture and
Fisheries
12 Other titles on this subject:
Omgevingsanalyse - en biomassa(rest)stromen – Beleids- en marktontwikkelingen in
Vlaanderen en omringende regio’s.

Voortgangsrapportage actieplan duurzaam beheer van biomassa(rest)stromen 2015-2020

You have the right to download this document, to print and to disseminate digitally . By using this
document, please mention the following reference (OVAM, 2021) Action plan circular food loss and biomass
(residual) flows 2021-2025.

You can find/download most OVAM-publications on http://www.ovam.be .

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Reading guide

This Action Plan is partly translated in English. The summary gives an overview of the entire plan.
Chapter 4, 5 en 6 contain the action programs about food loss/waste and biomass (residual)
flows. Chapter 8 concerns the follow up of this Action Plan.
In the contents on next page you find an overview of the translated chapters.

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CONTENTS
Summary:................................................................................................................................................. 8
Leeswijzer .............................................................................................................................................. 14
1 Actieplan voedselverlies en biomassa(rest)stromen circulair 2021 - 2025 ........................... 15
1.1 Context 15
1.2 Het actieplan binnen de bredere Vlaamse beleidscontext 16
1.3 Doel van dit actieplan 19
1.4 Totstandkoming 19
1.5 Focus op drie kringlopen 20
1.6 Status en tijdshorizon 22
1.7 Conclusies uit het vorige actieplan 23
2 Internationaal kader .............................................................................................................. 24
2.1 Internationaal Beleidskader 24
2.1.1 De EU-strategie bio-economie 24
2.1.2 De Europese Green Deal 26
2.1.3 De ‘Van boer tot vork’-strategie 27
2.1.4 De Europese Biodiversiteitsstrategie 28
2.1.5 De duurzame ontwikkelingsdoelen of Sustainable Development Goals (SDG) 28
2.2 Uitdagingen en oplossingen 28
3 Krachtlijnen ............................................................................................................................ 30
3.1 De kringloop sluiten als centraal principe 30
3.2 Krachtlijnen per kringloop 32
4 Food loss and food waste and residual flows from producer to consumer .......................... 33
4.1 Conceptual framework 33
4.2 Approach 36
4.3 Targets for 2023, 2025 and 2030 38
4.4 More prevention and reuse, less loss 39
4.4.1 Strategy 39
4.4.2 Targets for 2023/2025 44
4.4.3 Action programmes 44
4.5 Better sorting and collection 54
4.5.1 Strategy 54
4.5.2 Targets for 2023/2025 57
4.5.3 Action programmes 57
4.6 Higher value valorisation 59
4.6.1 Strategy 59
4.6.2 Targets for 2025 62
4.6.3 Action programmes 62
5 Biomass (waste) flows of nature, forest and landscape management .................................. 69

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5.1 Approach 69
5.2 Targets for 2025 71
5.3 Prevention and fewer losses 71
5.4 Better sorting and collection 72
5.4.1 Strategy 72
5.4.2 Targets for 2025 74
5.4.3 Action programmes 74
5.5 Higher value valorisation 77
5.5.1 Strategy 77
5.5.2 Implementation of the strategy 78
5.5.3 Targets for 2025 81
5.5.4 Actions 81
6 Wood (waste) flows from industry and households .............................................................. 86
6.1 Approach 86
6.2 Targets for 2025 and 2030 88
6.3 More prevention, less loss 88
6.3.1 Strategy 88
6.4 Better sorting and collection 89
6.4.1 Strategy 90
6.4.2 Targets for 2025 90
6.4.3 Action programme 91
6.5 Higher value valorisation 92
6.5.1 Strategy 92
6.5.2 Targets for 2025 94
6.5.3 Action programme 94
7 Impact van het actieplan ........................................................................................................ 97
7.1 Milieu-impact 97
7.2 Socio-economische impact 105
7.3 Budgettaire impact 108
8 Following up the action plan ................................................................................................ 109
8.1 Consultation with stakeholders 109
8.1.1 Umbrella steering group 109
8.1.2 Steering group per cycle 109
8.1.3 Stakeholder consultation per cycle 110
8.2 Reporting and evaluation 110
8.2.1 Reporting per action/programme 110
8.2.2 Working with a schedule 110
8.2.3 Progress follow-up 110
8.2.4 Reporting and evaluation 110
8.3 Information and Communication 110

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8.4 Data monitoring 111
8.4.1 Monitoring food waste and food losses 111
8.4.2 Monitoring of biomass (waste) flows from the nature, forest and landscape management flow and wood waste from the
industry and households flow 112
9 Bijlagen ................................................................................................................................. 113
9.1 Definities 113
9.2 Afkortingen 117
9.3 Basisdata milieu-impactberekening 119
9.4 Doorkijk 2050 120
9.4.1 Visie 2050 van de Vlaamse regering 120
9.4.2 Vlaamse Klimaatstrategie 2050 121
9.5 Visualisering van tendensen voor de kringlopen 122
9.5.1 Kringloop voedselverlies en voedselreststromen van producent tot en met consument 123
9.5.2 Kringloop biomassa(rest)stromen van groen-, natuur, bos- en landschapsbeheer 124
9.5.3 Kringloop houtafval van industrie en huishoudens 126
9.6 Financieringsmogelijkheden 129
9.7 Status actieprogramma’s 2015-2020 en relatie met nieuwe acties 132
9.8 Beleidscontext valorisatie reststromen open ruimte 137
9.9 Prognoses vraag en aanbod houtafval van industrie en huishoudens na 2020. 141
9.10 Overzicht van alle acties 142
9.10.1 Kringloop voedselverlies en voedselreststromen van producent tot en met consument 142
9.10.2 Kringloop biomassa(rest)stromen van groen-, natuur-, bos-, en landschapsbeheer 150
9.10.3 Kringloop hout(rest)stromen van industrie en huishoudens 152
9.11 Referenties 152
9.12 Relevante bepalingen Vlaams Regeerakkoord 2019-2024 155

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SUMMARY:
In the transformation to a circular economy, biomass and food (waste and residual) flows have much to
offer. However, despite the fact that Flanders is one of the international leaders in the sustainable
management of food loss and biomass residues, the potential of biomass residues and food (waste and
residual) flows is still insufficiently exploited in the region. Moreover, many challenges still exist to close the
biotic loop, in legal and policy terms as well in terms of operational, economic and environmental aspects.
Food loss and biomass (waste) flows occur in all phases of the food and biomass chain and interlink with
various societal areas . Managing these flows falls within the competence of different policy areas, and
many sectors and stakeholders are involved. For this reason, a comprehensive plan is needed that provides
solutions and outlines actions that will ensure a well-coordinated policy.

The action plan builds on the achievements and unresolved challenges of the Food Supply Chain Roadmap on
Food Loss 2015-2020 and the Action Plan for the Sustainable Management of(Residual) Biomass Streams
2015-2020.
A strong interaction exists between this action plan and other Flemish policy plans. Biomass and food is one of
the five important themes within the Transition to the Circular Economy and the "Vision - in 2050 Flanders will
be Circular". Furthermore,
the Government of Flanders has set itself the goal of developing an integrated
Flemish food policy. This action plan contributes to this policy by focusing on the prevention of food loss
throughout the chain and evolving towards a (more) circular food system. Finally, the actions in the plan
support the objectives and ambitions of the Flemish Energy and Climate Plan 2021-2030.

The action plan connects with the European policy framework in several ways. It endorses the 2018 European
Bioeconomy Strategy. The EU Green Deal also includes several initiatives relevant to this action plan. In
addition, this action plan's action programmes contribute to the United Nations sustainable development
goals, focusing on SDG12: Responsible Consumption and Production.

Three cycles

This action plan is structured around three material cycles.
1. Cycle 1: food (waste and residual) flows from producer to consumer , i.e. the food loss and waste
flows from producer (primary sector), producer organisations (hereafter called horticultural
cooperatives), food industry, distribution, catering and consumers;
2. Cycle 2: biomass (residual) flows that occur in the nature, forest and landscape management;
3. Cycle 3: wood (residual) flows from industry and households .

Three pillars

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Closing loops is a central principle in the waste and sustainable materials management policy. Fewer materials
are used and they are utilised more efficiently, their value is retained as long as possible and leakage flows are
avoided.
The emphasis in the sustainable materials management policy is on the separate collection of
biowaste from households and businesses. Waste flows that are nevertheless released must be put to the best
possible use.

The three pillars that are central to this action plan follow the materials hierarchy and the cascading principle.
They form the basis for managing each cycle.
• Pillar 1: More prevention, less loss;
• Pillar 2: Better sorting and collection;
• Pillar 3: Higher value valorisation.

Objectives

The following table summarises the targets of this action plan. The targets for the end of 2023, 2025 and 2030
are based on:

• the targets in the Waste Framework Directive 851/2018 (art. 9 prevention, art. 11 recycling, item 31);
• the ambition of the Government of Flanders , see Coalition Agreement 2019-2024

Annex 9.7 refers to the targets and realisations of the Action Plan for the Sustainable Management of
(Residual) Biomass (Waste) Streams 2015-2020 and the Food Supply Chain Roadmap on Food Loss 2015-2020.

Table 1: Overview of targets in this action plan

FOOD LOSS AND FOOD WASTE FLOWS FROM PRODUCER TO CONSUMER
Targets for the end of 2023
► All food retail (specialised and non-specialised), all food wholesalers and all food distribution centres
to contribute to food donations and/or some other form of redistribution of food products for
human consumption.
► Businesses to collect food waste separately.
Targets for the end of 2025
► The entire chain aims to avoid, re-process as food or valorise with higher value 1 30% of food losses
compared to 2015.

1 Indicative target that applies for the entire Europe an Union

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► Residual waste from businesses (hotels, restaurants, catering, hospitality, retail) to decrease by 20%
compared to 2019.
► Optimum valorisation of food waste flows; where this is not yet happening although it is possible
and legally permitted, the aim is to valorise them higher up the cascade 2 (higher cascade index
compared to 2015).
Targets for the end of 2030
► Flanders contributes to the UN Sustainable Development Goals (SDG 12.3) with actions to reduce
food loss and waste in primary production, horticultural cooperatives, the food industry, food retail
and distribution, restaurants, catering and households. SDG 12.3 aims to halve food waste per
capita worldwide by 2030, at retail and consumer levels. SDG 12.3 also aims to reduce food losses
throughout our food production and supply chain.
► Contribution to the following target of the European Waste Framework Directive: At least 60% of
municipal waste to be reused or recycled.
BIOMASS ( RESIDUAL ) FLOWS FROM NATURE, FOREST AND LANDSCAPE MANAGEMENT
Targets for the end of 2025
► Mobilise and valorise residual flows from nature, forest and landscape management in an optimal
way, respecting the main functions of each area and ensuring that biodiversity objectives and the
maintenance of the organic matter content/carbon stock in soils are respected 3.
► In the period 2020-2025, at least eight research or pilot projects for specific residual flows in open
spaces were started. Furthermore, one experimental space to be set up that can produce fibre
samples for testing at potential customers.
► In 2025, at least one installation will be operational in Flanders that can process specific residues
into high-value raw materials.
► In 2025, at least 30,000 tonnes of natural grass clippings (fresh material, wet weighted) will be
treated for use in material applications (in addition to composting).
► By 2022 at the latest, a digital platform will be operational that visualises the supply of Flemish
biomass waste flows from nature, forest and landscape management.
WOOD ( RESIDUAL ) FLOWS FROM INDUSTRY AND HOUSEHOLDS
Targets for the end of 2025
► Flemish post-consumer wood waste will no longer be sold for energy applications without prior
(source) sorting 4.
► Chipboards produced in Flanders to consist of at least 85% recycled post-consumer wood waste; an
increase of 15% compared to 2020.

2 Subject to what is logistically justifiable in the case of small quantities or, for example, an except ional food crisis situation.
3See the no-debit rule in the Flemish Energy and Climate Plan 2021-2030, at least for the period until 2030.
4 This ambition is greater than in the Action Plan for the Sustainable Management of (Residual) Biomas s (Waste) Streams 2015-2020, where this target was set for 2030.

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Targets for the end of 2030
► Contribution to European target: 50% of the recyclable portion of household and commercial waste
to be recycled additionally.

Actions per cycle

The actions that could have most impact for a more sustainable management of food losses and biomass
(residual) flows are listed below. The complete overview of all actions can be found in Annex 9.10.

Cycle 1: food loss and food waste flows from producer to consumer

The focus of this cycle is prevention. All actions must contribute to reducing food losses by 30%. After
prevention and re-use, the emphasis is on the separate collection of biowaste from households and
businesses . Every link in the chain must contribute. Collaboration in the chain is the new focus of this action
plan.

Prevention and re-use

To prevent food losses, this plan sets out the following action programmes:
• Encourage collaboration within product chains. More collaboration projects between actors within a
product chain. The focus is on food loss flows involving actions that may lead to high impact results in
the fruit and vegetable, dairy, bread, potato, meat and fish production chains.
• Creation of sector-specific programmes. Sector-specific programmes must encourage businesses to
curb food loss on a large scale.
• Reduce food loss at the consumer end of the chain. Integrated interventions from the chain must
minimise the risk of food loss by consumers and in the consumption stage in hotels, restaurants,
catering and retail sectors.
• Scale up social circular entrepreneurship. Here the focus is on expanding the existing distribution
network of food banks and regional distribution platforms, starting up food hubs, and strengthening
cooperation with the suppliers and processors of surplus food for human consumption.
• Support food loss start-ups.
• Support local authorities in their local role to prevent food loss.
• Stimulate domestic recycling. Domestic recycling is given more attention. Information is disseminated
on recycling techniques such as home composting, low-waste gardening, keeping chickens (that eat
vegetable kitchen scraps) and circular gardening.

Better sorting and collection

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Improve separate collection of kitchen and food waste from businesses. This action programme focuses on
improving the separate collection of kitchen and food waste from businesses. The focus is on providing
information on correct collection and sorting rules, raising awareness, stimulating through appropriate pricing,
and monitoring. The optimisation of the separate collection of vegetable, fruit and garden waste (VFG) waste
from households is included in the
Implementation plan for household waste and comparable industrial waste
2016-2022 .

Higher value valorisation

Increase the circularity and sustainability of the recycling market. This action plan consists of different
actions to increase the circularity and sustainability of the recycling market. The flows must be as pure as
possible in order to produce output with higher added value.

Increase the added value of the market. The focus on quality and circularity can stimulate the development of
a differentiated market for the finished products of biological processing. The goal here is to increase the
market trust in these recycled products, as to ensure demand for these products.

Cycle 2: biomass (residual) flows from nature, forest and landscape management

Cooperation and coordination of the management of waste flows from landscape management will be raised
to a higher level by stimulating the use of the services of the 'Rural Maintenance Office'.

The sustainable management of landscape elements will be further facilitated by developing an appropriate
and practical toolset for vision development and the management of hedges and hedgerows .

The Symbiosis platform is available to landscape managers and users of residual flows to better align supply
and demand of these residual flows.

Some of the firewood flows that have become available through the implementation of the measures of the
Green Deal Domestic Wood Combustion will be repurposed (for material applications).

A legislative framework will be established for on-farm composting to ensure the environmentally sound use
of biomass residual flows from landscape management in on-farm composting.

Cycle 3: wood (residual) flows from industry and households

Following a deeper analysis of the reuse sector and bulky waste composition, further collaboration with the
furniture sector to produce incentives for upcycling, repair, reuse and eco-design of furniture.

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Minimum requirements will be developed for the pre-sorting or post-sorting of separately collected wood
waste to ensure supply for mechanical recycling.

Research into innovative materials applications for post-consumer wood waste will continue to diversify the
recycling of wood waste materials.

Implementation and financing

All stakeholders involved in the creation and management of food and biomass (residual) flows actively
participated in the drafting of this action plan: sector organisations, research institutes, public authorities. The
Environment and Nature Council (Minaraad) and Flanders Social and Economic Council (SERV) were also
involved as umbrella advisory committees in addition to representatives of the three cycles. The stakeholders
and public authorities are committed to jointly implement this action plan's targets and action programmes.
New knowledge or insights arising from policy or market developments may be incorporated into the actions
during the term of the plan, or may give rise to new actions or the adjustment or elimination of certain
actions.

A number of actions are subject to the approval of project funding . Resources must be found, especially for
the
implementation of actions that require projects to be launched. The Flemish authorities, initiators and
partners of the actions will make maximum use of the available funding channels (European, Belgian, Flemish,
local) insofar as they are eligible. For the whole plan, the extent of the implementation of actions will partly
depend on the final resources available.

Monitoring the progress of the actions

The action plan is coordinated by the Public Waste Agency of Flanders (OVAM). OVAM co-ordinate with the
activities of other consultation platforms. A steering group for each cycle will monitor the progress of the
actions and, if necessary, adjust actions during the term of the plan. The steering group consists of the
initiators of the action programmes. Stakeholder consultation per cycle shares knowledge and gives all parties
involved insight into the progress of the actions. The initiators of each action report annually to the steering
group on the progress of the actions and the results achieved. Progress is monitored on the basis of
predefined indicators for each (sub)action. A comprehensive progress report and monitoring of the quantities
and destinations of food losses and by-products is discussed in the steering group every two years and
published online. This progress report also serves as an evaluation of the actions.

The monitoring of food losses and food waste is continued with a two-yearly reporting at the Flemish level, an
annual reporting to the EU level and a four-yearly extended reporting (of the sorting analysis) to the EU level.
The market analysis for the biomass from open spaces and wood waste cycle is updated every two years. A
more structured approach is needed to better align the supply and demand of biomass (residual) flows.

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LEESWIJZER
Het actieplan voedselverlies en biomassa(rest)stromen circulair 2021-2025 stelt het beleid voor de komende
vijf jaar voor, voor het inperken van voedselverlies en het circulair inzetten van biomassastromen en
biomassareststromen. Het actieplan focust op drie kringlopen:
- kringloop 1: voedselverlies en voedselreststromen van producent tot en met consument;
- kringloop 2: biomassa(rest)stromen van groen-, natuur, bos- en landschapsbeheer;
- kringloop 3: hout(rest)stromen van industrie en huishoudens.
Het waarom van het actieplan, de plaats ervan in het Vlaamse beleidskader, hoe het tot stand kwam en de
afbakening van de inhoud staat in hoofdstuk 1. Daar staat ook de juridische basis van dit actieplan.

Hoofdstuk 2 schetst het Europese beleidskader.

Hoofdstuk 3 legt de krachtlijnen uit waarop het actieplan is gebouwd: preventie, selectieve inzameling en
hoogwaardige valorisatie.

Hoofdstukken 4, 5 en 6 beschrijven de drie kringlopen van dit actieplan. Elke kringloop is opgebouwd volgens
de drie krachtlijnen. Elke krachtlijn heeft de volgende indeling: strategie, doelstellingen tegen eind 2025,
actieprogramma’s en acties.

Hoofdstuk 7 omschrijft de impact die verwacht wordt met dit actieplan: de milieu-impact, de socio-
economische impact en de budgettaire impact.

In hoofdstuk 8 staat welke opvolgingstrajecten zijn uitgetekend om de acties in dit actieplan op te volgen:
overlegstructuren, rapportering, communicatie en monitoring.

In de bijlagen staan de definities, afkortingen en referenties. De bijlage bevat ook een uitgebreid overzicht van
de financieringsmogelijkheden, van de stand van zaken van de realisaties uit het Actieplan
Biomassa(rest)stromen 2015-2020, en van de lopende beleidsplannen die raakvlakken tonen met dit actieplan.
Verder zit in de bijlage verhelderende achtergrondinfo bij bepaalde items, de uitgebreide beleidscontext van
de valorisaties van reststromen uit de open ruimte en een bondig overzicht van alle actieprogramma’s.

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1 ACTIEPLAN VOEDSELVERLIES EN BIOMASSA(REST)STROMEN
CIRCULAIR 2021 - 2025
Materialen uit de biologische kringloop zo optimaal mogelijk inzetten, verliesstromen en onderbenutte
reststromen tot een minimum beperken: dat is het doel van dit actieplan. Het plan zet de reeds geleverde
inspanningen van de stakeholders voort en schroeft het ambitieniveau op, om zo de Vlaamse en Europese
doelstellingen voor 2025 en 2030 te behalen. De actieprogramma’s in dit plan geven actoren in de betrokken
sectoren de drive om circulair te blijven innoveren en ondernemen. Zo zetten we samen Vlaanderen nog
sterker op de kaart als innovatieve regio en koploper in de circulaire economie.

1.1 CONTEXT
De circulaire economie staat hoog op de beleidsagenda – zowel internationaal, Europees als in België en
Vlaanderen. Ze is gericht op het optimaal inzetten en hergebruiken van grondstoffen in alle schakels van de
productieketen: van de winning van grondstoffen tot consumptie. De transitie naar een circulaire economie is
noodzakelijk, omdat grondstoffen schaars dreigen te worden door de wereldwijde bevolkingsgroei en
toenemende welvaart. Het wordt daardoor steeds belangrijker om de beschikbare grondstoffen zo efficiënt
mogelijk te gebruiken. Een circulaire economie biedt ook nieuwe kansen voor de bedrijven: nieuwe
businessmodellen, nieuwe markten, nieuwe samenwerkingen binnen de keten en minder
grondstoffenverbruik. Volgens de Europese Commissie is de transitie naar een circulaire economie dan ook dé
kans om onze economie toekomstbestendig te transformeren en nieuwe, duurzame concurrentievoordelen
voor Europa te creëren.

In de transformatie naar een circulaire economie hebben biomassa- en voedsel(rest)stromen veel te bieden.
Ze zijn hernieuwbaar, veelzijdig inzetbaar als nieuwe grondstof en biodegradeerbaar op het einde van hun
levenscyclus. Door technologische innovaties ontdekken we nieuwe bio-gebaseerde, duurzame materialen en
ontstaat minder afval.

Vlaanderen is internationale koploper in het duurzaam beheer van voedselverlies en biomassa. Toch zijn er
uitdagingen. Ons huidige voedsel- en consumptiesysteem legt een grote druk op schaarser wordende
grondstoffen. Er is voedselverlies dat op een meer hoogwaardige manier kan ingezet worden, ook in
crisissituaties waarbij er een plots overaanbod is aan producten (bv Ruslandcrisis, corona, EHEC). Er is ook veel
voedselverlies dat nog niet gevaloriseerd wordt, zoals voedselresten die in het restafval terechtkomen.
Doorbraken in nieuwe toepassingen van biomassareststromen blijven soms uit doordat er geen continu
aanbod verzekerd kan worden, omdat de vraag ontoereikend is of omdat de regelgeving voor hindernissen
zorgt. Voorts kan de inzet van biomassa en voedselreststromen ook negatieve effecten op de leefomgeving
met zich meebrengen, denk maar aan een toename van de emissies naar lucht en water of een daling van de
organische koolstof in de bodem.

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Dit actieplan biedt oplossingen voor bovenstaande uitdagingen en zorgt voor een goed afgestemd beleid.
Voedselverlies en biomassa(rest)stromen ontstaan immers in alle fasen van de voedsel- en biomassaketen en
raken aan diverse maatschappelijke domeinen. Het beheer ervan behoort tot de bevoegdheid van
verschillende beleidsdomeinen en tal van sectoren en stakeholders zijn betrokken: bedrijven, organisaties,
sectorfederaties, onderzoeksinstellingen …

1.2 HET ACTIEPLAN BINNEN DE BREDERE VLAAMSE BELEIDSCONTEXT

Het actieplan bouwt verder op de realisaties en openstaande uitdagingen van de
Ketenroadmap
Voedselverlies 2015-2020 en het Actieplan Duurzaam beheer van biomassa(rest)stromen 2015-2020.
Er is een sterke wisselwerking tussen dit actieplan en andere Vlaamse beleidsplannen.

Biomassa en voeding wordt als één van de vijf belangrijke thema's aangeduid binnen de Transitie Circulaire
economie en de "Visie - in 2050 is Vlaanderen Circulair" : ‘We kunnen een duurzame circulaire economie pas
realiseren als we ook hernieuwbare hulpbronnen gebruiken, zoals biomassa. Daarom zetten we in op het
uitbouwen van de Vlaamse economie tot een competitieve bio-economie die biomassa duurzaam produceert
en biomassa(rest)stromen (her)gebruikt voor voeding, veevoeder, materialen, producten en energie.’
De
aanpak van dit thema gebeurt door samenwerking tussen meerdere beleidsdomeinen. Met de ondersteuning
van projecten via de calls Circulaire Economie wil Vlaanderen Circulair het sluiten van de keten aanmoedigen.

De Vlaamse Regering stelt zichzelf het doel om een geïntegreerd Vlaams voedselbeleid te ontwikkelen. Er
wordt ook een Vlaamse Voedseltop naar voren geschoven, in samenwerking met de vraag- en aanbodzijde van
de markt. Voedsel(beleid) is een centrale kapstok in de beleidsnota landbouw en visserij. Ook de beleidsnota’s
‘economie, wetenschapsbeleid en innovatie’, omgeving, klimaat, toerisme, welzijn, ‘volksgezondheid, gezin en
armoede’ besteden aandacht aan het voedselbeleid. Een samenwerking met alle relevante beleidsdomeinen, -
niveaus en stakeholders zal worden aangegaan. Dit actieplan draagt bij aan het geïntegreerd Vlaams
voedselbeleid door te focussen op het vermijden van voedselverlies doorheen de keten en te evolueren
naar een (meer) circulair voedselsysteem .

Het recent goedgekeurde Vlaams beleidsplan
5 bio-economie legt de nadruk op onderzoek, innovatie én
samenwerking tussen industrie en landbouw, met als doel het verankeren en uitbouwen van de bio-economie
in Vlaanderen. Het beleidsplan bio-economie vormt binnen deze transversale werking een belangrijk
onderdeel van de werkagenda bio-economie en is complementair aan dit actieplan.

Daarnaast ondersteunen de acties van het plan vooral de doelstellingen en ambities in het Vlaams energie-
en klimaatplan 2021-2030 . Binnen de circulaire economie helpen maatregelen rond de preventie van
voedselverliezen en het duurzaam beheer van biomassa(rest)stromen om de noodzakelijke emissiereductie en

5VR 2020 1812 DOC.1464/1BIS, ratified by the Governm ent of Flanders on 18 December 2020.

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koolstofopslag te realiseren. Het verband tussen dit actieplan en het Vlaams energie- en klimaatplan wordt
zichtbaar gemaakt door onder meer volgende acties (zie ook verder in de actieprogramma’s):

1. De verdere reductie van voedselverliezen doorheen de voedselketen;
2. Meer en betere selectieve inzameling en hoogwaardige verwerking van organisch-biologisch afval uit
bedrijfsafval en huishoudelijk afval;
3. Het duurzaam mobiliseren van biomassa voor koolstofopslag en hernieuwbare energieproductie;
4. De verhoging van de recyclage van houtafval in plaatmaterialen en andere materiaaltoepassingen;
5. Het instellen van een kader voor het gebruik van houtsnippers
6 als bodemverbeteraar;
6. Het instellen van een kader voor het stimuleren van boerderijcompostering;
7. Het verhogen van het aanbod organische bodemverbeteraars en meststoffen voor het behoud en
verhoging van het aandeel organische koolstof in de Vlaamse landbouwgrond;
8. Een actief beheer van landschapselementen;
9. Een betere cascadering van de bosbiomassa en vergelijkbare biomassa uit kleine
landschapselementen.

Onderstaande tabel geeft een overzicht van de gekoppelde beleidsplannen/-nota’s en aan welke
doelstellingen en maatregelen dit actieplan bijdraagt, of waar de beleidsplannen ondersteuning kunnen
bieden aan het realiseren van de doelstellingen van dit actieplan.
De omgevingsanalyse 7 biedt aanvullend een overzicht van het huidige Vlaamse beleidskader en licht de
ontwikkelingen toe tot en met september 2019.

Tabel 2: Overzicht van beleidsplannen/-nota’s waar dit actieplan aan gelinkt is

Actieplan voedselverlies en biomassa(rest)stromen circulair 2021 - 2025
draagt bij aan wordt ondersteund door
EU Actieplan Circulaire economie - Vermindering voedselafval
- Efficiënter nutriëntenbeheer
- Plan van aanpak voor gebruik van
biodegradeerbare en
composteerbare plastics

- Beleidskader voor gebruik van
biodegradeerbare en
composteerbare plastics
- Vastleggen doelstelling voor
reductie voedselafval
- Ontwikkeling van een
geïntegreerd
nutriëntenbeheerplan
EU Farm to Fork strategie 8 - Duurzame voedselconsumptie door
preventie voedselverliezen
- Ecoregelingen bijdrage deel GLB 9
budget voor klimaatmaatregelen
Transitie CE – deelthema Bio/voeding - Duurzame voedselconsumptie door
preventie voedselverliezen
- Sluiten biomassakringlopen
- Calls Circulaire economie
- Coördinatie deeltransitie
bio/voeding

6Woody biomass/wood chips means all wood fractions f rom forest, garden, nature and landscapes.
7Environmental analysis of food and biomass (waste) flows – Policy and market developments in Flanders and surrounding regions. OVAM, 2019
8Launch of Farm to Fork strategy on 20 May 2020
9In progress

page 18 of 157
Vlaams voedselbeleid - Preventie voedselverliezen - Ontwikkeling duurzaam en gezond
voedselbeleid
Actieplan Bio-Economie 10 - Duurzaam beheer
biomassareststromen, opvolging
vraag en aanbod
biomassareststromen voor bio-
economie in Vlaanderen
- Afstemming beleid bio-economie
over de Vlaamse beleidsdomeinen
Vlaams energie- en klimaatplan 2021-2030 - Mobiliseren biomassa voor
hernieuwbare energieproductie en
koolstofopslag:
• Verhoging recyclage houtafval
in spaanplaat
• Houtsnippers als
bodemverbeteraar
• Kader boerderijcompostering
• Selectieve inzameling OBA
• Actief beheer
landschapselementen
• Betere cascadering
bosbiomassa en vergelijkbare
biomassa uit kleine
landschapselementen
- Ontwikkeling van een Vlaamse
koolstofmarkt
- Ondersteuning calls groene
warmte en biomethaan,
groenestroomcertificaten

Uitvoeringsplan Kunststoffen 2020 - 2025 - Onderzoek naar rol van
biodegradeerbare en biogebaseerde
kunststoffen (actie 7)
Ontwikkeling van een
beoordelingskader voor
biogebaseerde en/of
biodegradeerbare kunststoffen (actie
36)
Uitvoeringsplan Huishoudelijk afval en
gelijkaardig bedrijfsafval 2016-2022
- Thuiskringlopen
- Selectieve inzameling bij grote en
middelgrote OBA producenten
- Selectieve inzameling kleine OBA
producenten
- Onderzoek van gft-route voor
composteerbare plastics
- Beleidskader voor selectieve
inzameling w.o. gft- en groenafval
Strategie Vlaams GLB 2021 – 2027
(ontwerp)
- Beter sluiten van kringlopen op
bedrijfs- of sectorniveau
- Optimale benutting van
koolstofopslag in de landbouw
- Circulair gebruik van beheerresten
van onderhoud van
landschapselementen
- Conditionaliteit, ecoregelingen,
e.a.
Mestactieplan - Faciliteren van
boerderijcompostering
- Onderbouwing equivalente
maatregelen MAP6
- Voorbereiding en uitvoering
actieplan transitie
nutriëntenrecuperatie

10 The Bioeconomy Action Plan focuses on a number of s pecific umbrella government actions by the relevant policy areas for a Flemish bioeconomy (IWG Bioecon omy, 2020)

page 19 of 157

1.3 DOEL VAN DIT ACTIEPLAN
Met dit actieplan formuleert de Vlaamse Regering doelstellingen en actieprogramma’s die een duurzaam
beheer van voedsel 11 - en biomassa(rest)stromen mogelijk maken. Het plan focust op de preventie van
voedselverlies en selectieve inzameling en valorisatie van voedsel- en biomassa(rest)stromen omwille van de
nieuwe verplichtingen hierrond in de Europese Kaderrichtlijn afval.

Het plan heeft als doel :
- de uiteenlopende beleidsdoelstellingen en -initia tieven die een impact hebben op het gebruik van en
biomassa(rest)stromen op elkaar af te stemmen ;
- de afgestemde visie en het beleid rond voedselverlies en biomassa(rest)stromen helder te maken ;
- de mogelijke en gewenste bestemmingen van voedselverlies en biomassa(rest)stromen te
verduidelijken, alsook de materialenhiërarchie en het cascadeprincipe die die keuzes sturen;
- een geïntegreerd werkkader en actieprogramma’s aan te reiken voor alle betrokken partijen om samen
het duurzame beheer van voedselverlies en biomassa(rest)stromen in Vlaanderen te implementeren.

1.4 TOTSTANDKOMING

Vanuit haar expertise en bevoegdheid rond afval- en materialenbeleid werd het actieplan voorbereid door de
OVAM, het preventieluik voedselverlies door de OVAM, het departement Landbouw en Visserij en het
departement Omgeving (= kerngroep voedselverlies).

Alle stakeholders die betrokken zijn bij het ontstaan en het beheer van voedselverlies en
biomassa(rest)stromen incl. de betrokken beleidsdomeinen (Dept. LV, EWI, ANB, VLM, dOMG), namen actief
deel aan de opmaak van dit actieplan. Naast vertegenwoordigers van de drie kringlopen –
voedsel(rest)stromen, biomassa(rest)stromen van de open ruimte en hout(rest)stromen van industrie en
huishoudens (zie verder) – werden ook de Minaraad en de SERV-SALV betrokken als overkoepelende
adviesorganen.

Verschillende interactieve
workshops 12 hebben van bij de start input, kennis, ervaringen en uitwisselingen voor
de toekomstvisie opgeleverd. Een tussentijdse evaluatie van de Ketenroadmap Voedselverlies 2015-2020
leverde belangrijke informatie op, net als de monitor voedselverlies (2017, 2019). De samenwerking binnen de

11 The agri-food chain refers to food loss and food wa ste flows, not biomass waste flows.
12 The following UPOBA stakeholder workshops were held at OVAM: 11 June 2019, 17 September 2019, 26 Novem ber 2019 and in the week of 9 March.
The Food Loss Chain Platform was expanded in this r espect to include various stakeholders and met on 6 May 2019, 10 September 2019, 25 November 2019 and 10 March
2020.

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ketenroadmap werd getoetst aan de Blueprint Voluntary Agreements , ontwikkeld door WRAP (Waste and
Resources Action Programme) in het kader van het Europese onderzoeksproject REFRESH (Resource Efficient
Food and dRink for the Entire Supply cHain). Daarnaast werd input meegenomen uit de voortgangsrapportage
van het actieplan biomassa(rest)stromen 2015-2020, uit de omgevingsanalyse 13 en het Vlaamse en Europese
wetgevende kader. Uit de verschillende evaluatietrajecten blijkt dat er behoefte is aan concrete focuspunten
en structurele grensoverschrijdende samenwerkingsprojecten om het verschil te kunnen maken.

Het huidige actieplan is het resultaat van dit participatieve traject. De stakeholders en de overheid zullen
samen de doelstellingen en actieprogramma’s uitvoeren die erin vervat zitten.

Voor de acties werd een trekker aangeduid en zijn ook de betrokken partners weergegeven in het
actieoverzicht in bijlage 9.10.
1.5 FOCUS OP DRIE KRINGLOPEN
Dit actieplan is opgebouwd rond drie materiaalkringlopen. Per kringloop zijn er doelstellingen, een strategie,
en actieprogramma’s geformuleerd met concrete acties om de recyclagedoelstellingen en klimaatambities
voor 2030 14 te bereiken. De ambitie is om de kringloop verder te sluiten voor volgende stromen in de periode
2021-2025:
1. Kringloop 1: voedsel(rest)stromen van producent tot en met consument , ofwel de voedselverlies- en
-afvalstromen van producent (primaire sector), producentenorganisaties (hierna tuinbouwcoöperaties
genoemd), voedingsindustrie, distributie, catering, horeca, bedrijven en consumenten;
2. Kringloop 2: biomassa(rest)stromen die ontstaan in het groen-, natuur, bos- en landschapsbeheer;

Duiding voor de stromen die buiten de scope vallen: Ruimingsslib is geen biomassa en valt onder het
VLAREBO; korte omloophout valt binnen het produceren van landbouwgewassen.
3. Kringloop 3: hout(rest)stromen van industrie en huishoudens .

Onderstaande figuren geven een overzicht van de verschillende biomassa(rest)stromen en in welke kringloop
ze thuishoren. Ook de stromen die buiten de scope van dit actieplan vallen, zijn weergegeven.

13 In 2019, OVAM commissioned an environmental analysi s that maps out the policy and market developments of food and biomass (waste) flows in Flanders and t he
surrounding regions. Environmental analysis of food and biomass (waste) flows – Policy and market developments in Flanders and surrounding regions. OVAM, 2019
14 Environment Policy Memorandum 2019-2024, Ensuring v alue preservation of biomass

page 21 of 157

page 22 of 157

Figuur 1: Schematische weergave van de drie materiaalkringlopen in dit actieplan.
1.6 STATUS EN TIJDSHORIZON
De Europese Kaderrichtlijn voorziet dat alle lidstaten een preventieprogramma levensmiddelenafval (food
waste) moeten opmaken in 2020. Met dit Actieplan komt Vlaanderen hieraan tegemoet.

Het beleid rond circulaire economie is continu in beweging. Dit actieplan is daarom opgevat als een dynamisch
plan , dat wordt aangepast op basis van voortschrijdend inzicht. Nieuwe kennis of inzichten als gevolg van
beleids- of marktontwikkelingen krijgen in de loop van de planperiode een plaats in de acties, of kunnen
aanleiding geven tot nieuwe acties of aanpassing of eventuele schrapping van bepaalde acties. Het beleid rond
voedselverlies en het beheer van biomassa(rest)stromen moet worden bekeken vanuit het perspectief van de
hele kringloop en het totale plaatje van vraag en aanbod.

Status
Dit plan en de bijhorende opmaak- en goedkeuringsprocedure hebben hun juridische basis in artikel 17 van
het decreet van 23 december 2011 over het duurzaam beheer van materiaalkringlopen en afvalstoffen,
kortweg het Materialendecreet genoemd. Volgens het Materialendecreet is het een preventieprogramma ,
maar om het actieve karakter van het plan aan te duiden, noemen we het een actieplan.

Dit actieplan is een plan van de Vlaamse Regering. Het geldt voor alle administratieve overheden van het
Vlaamse Gewest, de provincies, de gemeenten en de publiekrechtelijke of privaatrechtelijke instellingen die

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belast zijn met taken van openbaar nut inzake milieubeleid. Dit plan vormt het kader waarbinnen alle
betrokken partijen de opgelegde taken uit het Materialendecreet uitvoeren.

Dit actieplan vervangt de Ketenroadmap Voedselverlies 2015-2020 en het Actieplan Duurzaam beheer van
biomassa(rest)stromen 2015-2020, die eind 2020 aflopen.

Tijdshorizon
Het Actieplan voedselverlies en biomassa(rest)stromen circulair 2021 – 2025 formuleert doelstellingen en
actieprogramma’s voor 2025. Voor aspecten waarvoor de Europese Kaderrichtlijn Afval een doelstelling voor
2023 vermeldt, geldt die als tussentijdse mijlpaal. Daarnaast houdt het plan rekening met de doelstellingen
2030 van de Europese Kaderrichtlijn Afval, het Regeerakkoord 2019-2024 van de Vlaamse Regering, het
Vlaams energie- en klimaatplan 2021-2030, het Actieplan Circulaire economie en de
duurzaamheidsdoelstellingen (Sustainable Development Goals of SDG’s) van de Verenigde Naties 15 . Een
doorkijk naar 2050 werd meegenomen op basis van de Visie 2050 van de Vlaamse regering en de Europese
ambitie voor klimaatneutraliteit wordt beschreven in bijlage 9.4.
Dit plan geldt tot eind 2025, maar blijft gelden zolang het niet vervangen wordt door een ander plan.

1.7 CONCLUSIES UIT HET VORIGE ACTIEPLAN
De acties rond voedselverlies en het duurzame beheer van biomassa(rest)stromen bouwen voort op het
Actieplan biomassa(rest)stomen 2015-2020 en de Ketenroadmap voedselverlies 2015-2020. Een grote groep
stakeholders heeft zich hiervoor de voorbije jaren ingezet en beloftevolle resultaten geboekt. De belangrijkste
verdiensten van de ‘vrijwillige’ Ketenroadmap voedselverlies zijn de bewustwording in alle schakels van de
keten, de behoefte aan concrete samenwerking binnen de keten over schakels heen en de opstart van een
nulmonitoring in 2015 en de verdere uitbouw van een meer structurele monitoring voedselverlies.

Omwille van de groeiende maatschappelijke aandacht, beter inzicht in de economische en milieubaten en de
nieuwe verplichtingen in de Europese Kaderrichtlijn afval is in dit actieplan gekozen om de vrijwillige publiek-
private samenwerking te upgraden naar een door de Vlaamse Regering goedgekeurd actieplan met sterke
stakeholdersbetrokkenheid, een concrete doelstelling voor schenking, verplichting van selectieve inzameling,
en verhoogde aandacht voor het respecteren van de cascade en de verwerkingshiërarchie. Daarmee willen we
blijven inzetten op preventie van voedselverliezen en hoogwaardige valorisatie in food, feed en biogebaseerde
toepassingen.

15 See also Table 1 in this action plan

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Bij biomassa van groen-, natuur-, bos- en landschapsbeheer moet de samenwerking tussen terreinbeheerders
en gezamenlijk beheer verder gestimuleerd worden. Daarnaast proberen we de vrijkomende
biomassareststromen voor deze kringloop zoveel mogelijk naar hoogwaardigere toepassingen te sturen.

Voor de kringloop houtafval van industrie en huishoudens werd de doelstelling van het vorige plan bereikt. De
uitdaging is om hier verdere groei minstens te consolideren en deze te verzoenen met de vraag vanuit andere
toepassingen in energie en industrie.

Een uitgebreid overzicht van de stand van zaken van de doelstellingen en realisaties uit het Actieplan
Duurzaam beheer biomassa(rest)stromen 2015-2020 zit in bijlage 9.7. De voortgang van de acties uit de
Ketenroadmap Voedselverlies 2015-2020 is beschikbaar op www.voedselverlies.be.
2 INTERNATIONAAL KADER
Vlaanderen zette de voorbije jaren al fors in op het verminderen van voedselverliezen en het sluiten van de
keten van voedsel- en biomassa(rest)stromen. Zowel België als Europa schroeft de ambities in de circulaire
economie op. De periode 2021-2025 biedt daarom opportuniteiten voor Vlaanderen om de circulaire
economie verder waar te maken.
2.1 INTERNATIONAAL BELEIDSKADER
2.1.1 De EU-strategie bio-economie
Dit actieplan onderschrijft de Europese strategie bio-economie (het actieplan van de Europese Commissie voor
een duurzame en circulaire bio-economie in het belang van de samenleving, het milieu en de economie in
Europa) uit 2018. Onderstaande figuur visualiseert hoe diverse Europese beleidsprogramma’s gelinkt zijn aan
de duurzame en circulaire bio-economie. Ze formuleren doelstellingen (bv. rond hernieuwbare energie en
rond de preventie van voedselverlies), leggen verplichtingen op (bv. rond selectieve inzameling van bio-afval)
en stellen productcriteria vast (bv. rond bemestingsproducten op basis van secundaire grondstoffen). In
andere gevallen gaat het om algemene beleidskaders, die sturend werken, denk maar aan de Energie-unie en
de rol van biobrandstoffen hierin.

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Figuur 2: Overzicht van Europees beleid rond duurzame en circulaire bio-economie. Bron: European Commission’s Knowledge Centre
for Bioeconomy 16

De omgevingsanalyse voedsel- en biomassa(rest)stromen 2019
17 gaat dieper in op de meest relevante
Europese en internationale beleidsontwikkelingen die effect hebben op dit actieplan. Het gaat naast de EU-
strategie bio-economie over het actieplan circulaire economie, de herziene afvalrichtlijnen, de verordening
bemestingsproducten, de kunststoffenstrategie, het gemeenschappelijk landbouwbeleid, de richtlijn
hernieuwbare energie (RED II), het klimaatbeleid en de verordening dierlijke bijproducten. De elementen uit al

16 https://ec.europa.eu/knowledge4policy/publication/e uropean-commissions-knowledge-centre-bioeconomy-gen eral-infographic_en
17 Environmental analysis of food and biomass (waste) flows – Policy and market developments in Flanders and surrounding regions. OVAM, 2019

page 26 of 157
deze beleidsplannen die belangrijk zijn voor dit actieplan komen in de omgevingsanalyse uitgebreid aan bod.
De omgevingsanalyse moet dus als achtergronddocument bij dit actieplan gelezen worden. Beleidsplannen die
na de publicatiedatum van de omgevingsanalyse (september 2019) zijn gepubliceerd, worden hieronder kort
aangehaald.
De omgevingsanalyse laat ook toe om te benchmarken met onze buurlanden. Daaruit blijkt dat Vlaanderen in
verhouding tot de buurlanden al een sterk uitgebouwd beleid rond biomassa en voedselverliezen heeft.
2.1.2 De Europese Green Deal
De Europese Commissie lanceerde op 11 december 2019 haar Europese Green Deal. De Green Deal beschrijft
hoe Europa tegen 2050 het eerste klimaatneutrale continent kan worden. Het is een routekaart om de
economie van de EU duurzaam te maken, door de klimaat- en milieu-uitdagingen om te zetten in kansen op
alle beleidsterreinen en de overgang rechtvaardig en inclusief voor iedereen te maken. Het doel is het
efficiënte gebruik van hulpbronnen te stimuleren door over te gaan op een schone, circulaire economie en de
klimaatverandering een halt toe te roepen, het verlies aan biodiversiteit om te buigen en de vervuiling terug te
dringen. Er wordt een overzicht gegeven van de benodigde investeringen en de beschikbare
financieringsinstrumenten. De Europese Green Deal bestrijkt alle sectoren van de economie, met name
vervoer, energie, landbouw, gebouwen en industrieën.

Onder de Green Deal vallen verschillende initiatieven die relevant zijn voor dit actieplan. De ‘Van boer tot
vork’-strategie ambieert een duurzaam voedselsysteem en schenkt aandacht aan voedselverliezen en de
uitdaging van verpakkingen van voedsel (zie 2.1.3). De biodiversiteitsstrategie zet in op de bescherming en de
ontwikkeling van de biodiversiteit, bodemkwaliteit en kondigt een geïntegreerd nutriëntenbeheersplan aan.
De Commissie zal ook een actieplan voor nulverontreiniging lanceren om verontreiniging van lucht, water en
bodem te voorkomen. Het nieuwe actieplan circulaire economie moet een regelgevend kader opleveren voor
biogebaseerde, biologisch afbreekbare en composteerbare plastics.

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Figuur 3: De Europese Green Deal en de link met de verschillende beleidsdomeinen. Bron: Europese Commissie
2.1.3 De ‘Van boer tot vork’-strategie
De ‘Van boer tot vork’-strategie (Farm to Fork of F2F) heeft als opzet de doelstellingen van de Green Deal voor
duurzame voedselproductie te bereiken. De Green Deal wil van het Europese voedselsysteem de standaard
maken op vlak van duurzaamheid. Landbouwers en vissers zijn sleutelactoren om de transitie te
bewerkstelligen. De F2F wil hun inspanningen op vlak van milieu en klimaat versterken. De belangrijkste linken
vanuit de F2F-strategie met dit plan zijn:
• 40 % van het totale budget voor landbouwbeleid en 30 % van het budget voor visserijbeleid moet
bijdragen aan klimaatacties en bijgevolg een gunstig effect hebben op het tegengaan van of wapenen
tegen klimaatverandering;
• Eco-regelingen moeten landbouwers vergoeden voor betere prestaties op klimaat- en milieuvlak, denk
maar aan koolstofopslag in de bodem, verbeterd nutriëntenbeheer en emissiereducties;
• De F2F moet een bijdrage leveren aan de circulaire economie;
• De F2F promoot duurzame voedselconsumptie en gezonde voeding;
• De F2F wil de positie van landbouwers in de voedselketen verbeteren;

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• De F2F kondigt wettelijk bindende doelstellingen voor de reductie van voedselafval bij de consument
en de detailhandel aan (2023).

2.1.4 De Europese Biodiversiteitsstrategie
De nieuwe Europese biodiversiteitsstrategie legt duidelijke verbanden met menselijke gezondheid, het
voedselsysteem, economie, klimaat en de oorzaken en gevolgen van de covid-19 pandemie.

De strategie ambieert om op 30 % van de EU landoppervlakte en op 30 % van de Europese zeegebieden
beschermd natuurgebied te realiseren. Daarbij worden oerbossen en oude bosgebieden strenger beschermd
en worden wettelijk bindende doelstellingen voor natuurherstel vastgelegd in 2021.

Ook het herstel van gedegradeerde ecosystemen (land en zee) zal worden gerealiseerd door:

1. Toename van biolandbouw en agrarische landschappen met rijke biodiversiteit;
2. De daling van de populatie van bestuivers afremmen en omkeren;
3. Minstens 25 000 km van de Europese rivieren weer vrij laten stromen;
4. Vermindering van gebruik en schadelijkheid van pesticiden met 50% tegen 2030;
5. Aanplanten van 3 miljard bomen voor 2030.

2.1.5 De duurzame ontwikkelingsdoelen of Sustainable Development Goals (SDG)
In 2015 keurden de 193 lidstaten van de Verenigde Naties de duurzame ontwikkelingsdoelen of Sustainable
Development Goals (SDG) goed, als onderdeel van de Agenda 2030. Daarmee engageerden deze landen,
waaronder België, zich om de nodige initiatieven en beslissingen te nemen die nodig zijn om onze planeet en
maatschappij op een duurzame koers te brengen.

De actieprogramma’s van dit actieplan dragen bij tot SDG 12: Verantwoorde Consumptie en Productie. Binnen
die SDG wordt een subdoelstelling rond de reductie van voedselverspilling en verliezen nagestreefd: ‘Tegen
2030 de voedselverspilling in winkels en bij consumenten per capita halveren en voedselverlies reduceren in de
productie- en bevoorradingsketens, met inbegrip van verliezen na de oogst’. Het geheel van de SDG’s wordt als
algemeen kader meegenomen in dit actieplan.

2.2 UITDAGINGEN EN OPLOSSINGEN
Gebaseerd op de doelstellingen, uitdagingen en opportuniteiten uit de Vlaamse, Belgische en internationale
context, wil het Actieplan Voedselverlies en biomassa(rest)stromen circulair 2021-2025 een oplossing bieden
voor de volgende uitdagingen:

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1. Het verlies van ‘natuurlijk kapitaal’ in de ganse keten voorkomen;
2. Recycleerbare organisch-biologische stromen niet langer – al dan niet met het restafval – aanbieden
voor verbranding of onbeheerd achterlaten;
3. Het circulaire economie-principe toepassen in de hele keten (agro-voeding, open ruimte …);
4. Een gelijk speelveld waarborgen;
5. De bodemkwaliteit behouden en verbeteren (focus organische koolstof);
6. Biomassa inzetten voor het behalen van de klimaat- en hernieuwbare energiedoelstellingen zonder in
conflict te komen met biodiversiteitsdoelstellingen en toepassingen voor voeding en materiaal.

De bodemkwaliteit in Vlaanderen
Vlaanderen kampt met een tekort aan organische koolstofgehalte in haar landbouwareaal. Om op lange
termijn de vruchtbaarheid van de landbouwgronden te herstellen, is het herstel van het organische
stofgehalte nodig. Bodems met een hoog organische stofgehalte bieden nog tal van andere voordelen. Zo
verhoogt een hoog organische stofgehalte het waterbergend vermogen en de waterdoorlaatbaarheid (minder
risico op wateroverlast en erosie). Organische stof levert nutriënten, zodat er minder kunstmeststoffen nodig
zijn, stimuleert een evenwichtig bodemleven en verbetert de weerbaarheid van teelten tegen ziektekiemen.
Ten slotte houden bodems met een hoog organische stofgehalte koolstof vast en zijn ze dus een deel van de
oplossing van het klimaatprobleem.

Het Vlaams energie- en klimaatplan 2021-2030 gaat voor de sector Land Use, Land Use Change and Forestry
(LULUCF) uit van de no-debit regel voor de opslag van koolstof in de Vlaamse bodems 18 . Een verlies van
organische koolstof is ongewenst en er moeten maatregelen worden genomen om dit gehalte op peil te
houden en mogelijk te verhogen. Gemiddeld verliest landbouwgrond jaarlijks 2 tot 2,5 % van zijn organische
koolstofgehalte. Om het organische koolstolgehalte te behouden moet er dus opnieuw organische koolstof
worden toegevoegd.

Om de biologische kringloop te sluiten en tegelijk het organisch gehalte van de Vlaamse bodems te verhogen,
is de productie van bodemverbeteraars belangrijk. Het thema komt dan ook terug in alle beleidsplannen rond
het beheer van biomassareststromen. Concreet zal dit actieplan bijdragen tot het herstel, behoud en
verhoging van het organische koolstofgehalte in de bodem met deze acties:

1. Verhogen van het aanbod aan vergistbare en composteerbare reststromen voor de productie van meer
organische bodemverbeteraars/meststoffen;
2. Stimuleren van het gebruik van organische bodemverbeteraars/meststoffen bij diverse afzetkanalen
(landbouw, groenvoorziening, burgers, …). Voor landbouwgronden wordt gestreefd naar een evenwicht tussen
de afzet van dierlijke mest rekening houdend met de nutriëntenlimieten en de afzet van organische
bodemverbeteraars omwille van het toenemend belang van organische stof ;

18 The sector must not be a net producer of CO 2. See Flemish Energy and Climate Plan 2021-2030, ch apter 1.1.3. (LULUCF: Land Use, Land Use Change and Forestry)

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3. Verhogen van het aanbod houtige reststromen door het stimuleren van meer samenwerking bij het beheer
van landschapselementen en bossen;
4. Ontwikkeling van een kader voor boerderijcompostering;
5. Ontwikkeling van een kader voor het gebruik van houtsnippers als bodemverbeteraar.
Goede voorbeeldpraktijken, kwaliteitsbewaking, onderbouwd onderzoek, normeringskader en voortschrijdend
inzicht in de koolstof/nutriëntenbalans zijn hierbij belangrijke randvoorwaarden.

De resultaten van bovenstaande acties worden ook beïnvloed door andere beleidsplannen en wetgeving met
betrekking tot de bodemkwaliteit.
3 KRACHTLIJNEN
3.1 DE KRINGLOOP SLUITEN ALS CENTRAAL PRINCIPE
In het afval- en materialenbeleid geldt het sluiten van de kringlopen als centraal principe. Materialen worden
optimaal benut en hun waarde blijft zo lang mogelijk behouden. De materialenhiërarchie en het
cascadeprincipe staan hierbij centraal. Voor dit actieplan betekent dat dat (rest)stromen een zo hoogwaardig
mogelijke toepassing moeten krijgen.

Materialenhiërarchie
De materialenhiërarchie vormt het speerpunt van het Materialendecreet. Ze houdt in dat preventie voorop
staat, voor hergebruik, recyclage, andere vormen van nuttige toepassing (bv. energietoepassingen) en
verwijdering (in die volgorde).

Cascade van waardebehoud
De cascade van waardebehoud geeft volgende volgorde aan voor de bestemming: voeding
19 - diervoeding -
materiaaltoepassing 20 - energie. De toepassing wordt niet alleen in functie van één bepaalde schakel gekozen;
de volledige keten wordt mee in rekening gebracht. Ook de volgende schakels in de keten moeten worden
bekeken, zodat duidelijk wordt welke toepassingen mogelijk zijn met de producten die overblijven na de
gekozen toepassing. Het cascadeprincipe resulteert in een ketenbenadering, die telkens de meerwaarde van
een reeks opeenvolgende toepassingen in rekening brengt. De keten wordt beoordeeld in functie van de
doelstellingen en randvoorwaarden.

Toegepast op dit actieplan wordt de cascade van waardebehoud per kringloop verder toegelicht in 4.2, 5.1 en
6.1.

19 Food and feed uses only apply to food waste streams
20 Cf. Materials Decree

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De cascade schept een kader voor het duurzame gebruik van voedsel- en biomassa(rest)stromen, maar kan
niet in elke situatie toegepast worden. Ook de concrete economische haalbaarheid (afhankelijk van het type
reststroom, plaats, tijdstip …) en specifieke wetgeving bepalen of de cascade gevolgd kan worden. Afwijking op
de cascade moet gemotiveerd worden op basis van levenscyclusdenken of vergelijkbare integrale analyses. In
elke stap van de cascade moet maximale efficiëntie nagestreefd worden. Communicatie, informatie en
harmonisatie tussen de verschillende schakels van de keten zijn cruciaal om de ketenaanpak te stroomlijnen
en de belangen van de verschillende betrokken sectoren op elkaar af te stemmen.

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3.2 KRACHTLIJNEN PER KRINGLOOP
Dit actieplan is opgebouwd rond drie krachtlijnen:
• Krachtlijn 1: Meer preventie, minder verlies;
• Krachtlijn 2: Beter sorteren en inzamelen;
• Krachtlijn 3: Meer hoogwaardige valorisatie.

Per kringloop krijgen ze een aangepaste invulling.

Figuur 4: Krachtlijnen voor het Actieplan “Voedselverlies en biomassa(rest)stromen circulair 2021-2025”

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4 FOOD LOSS AND FOOD WASTE AND RESIDUAL FLOWS FROM
PRODUCER TO CONSUMER
4.1 CONCEPTUAL FRAMEWORK

Figure 5: Diagram of food-related flows in the agri-food chain. Based on Monitor food waste flows and food losses 2015 (2017).

When a raw material or product is intended for human consumption, it is called a food raw material or a food
product. A food raw material or food product consists of an edible part (= food) and a non-edible part (= by-
product).

Food consumed by people (food consumption) has reached its destination. If food is ultimately not consumed
by people, we speak of food loss. The term 'loss' only indicates that it is a loss of food for human consumption.
It does not mean that the flow does not have a useful destination or cannot be valorised. Although there is a
loss of food for human consumption, the material can still be useful and given a high-quality valorisation.

Food raw materials or food products also contain a proportion of non-edible (for humans) biomass, which is
released during their processing or consumption. This is called a by-product. It is inedible organic material
associated with food but not a component of the food.

FOOD WASTE AND
RESIDUAL FLOWS

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When the edible or non-edible part of food raw materials or food products disappears from the agri-food
chain for human consumption (in the form of food losses or by-products), we speak of food waste and residual
flows. These streams are then given a non-human purpose.

Food waste and residual flows may start from the moment the food raw materials are ready to enter the food
system: they are ready to be harvested or slaughtered. The agri-food chain ends when food is consumed or
when a food waste flow is removed from the chain. Waste and residual flows that are released during primary
production, before the crops are ready for harvest or the animals are ready for slaughter, are not yet part of
the agri-food chain and therefore do not fall under the definition of 'food waste and residual flows'.
Agricultural crops are not always intended for human consumption. The production of fodder crops or biomass
for other non-food purposes (e.g. bio-energy or bio-materials) are of course related to the agri-food chain,
however, they fall outside the scope of food waste flows.

Other inedible biomass flows that are released at the beginning of the chain also exist besides inedible by-
products. We refer to ‘inedible biomass waste flows not linked to food’ to underscore the difference from by-
products. This concerns inedible biomass that we do not regard as a component of the food raw material or
product and which does not therefore enter the food chain. Examples: a fruit tree, chaff from grain, leaves and
stalks of certain crops that are generally not harvested and are left in the field, (earth) sludge that results from
the washing of commodities, etc.

The value preservation cascade (see figure 7) is the guiding principle that the authorities and the chain use
when dealing with food waste flows. Both food losses and by-products can still be valorised in one way or
another in order to preserve value. In this way, the materials flows are put to good use and the environmental
impact remains limited. The goal is to push the food waste flows as high as possible on the value preservation
cascade. The higher the position on the cascade, the higher the value preservation.

At the international and European level ( FAO and European Commission, respectively), the focus is on the
reduction of food waste. The term 'food waste' is used in the European Waste Framework Directive, however,
when communicating with the general public in Dutch we use the equivalent term 'voedselafval' and (former)
'voedingsmiddelen' (foodstuffs), in order to increase comprehensibility. On the one hand, these are food
waste flows that are given a waste destination or simply become waste. In other words, they are food waste
flows that are composted, fermented, kept on soil, incinerated or disposed of with waste water. Dumping is
not an option in Flanders. On the other hand, animal feed and bio-based materials as destinations are labelled
as valorisation. Reducing food waste means trying to push food waste flows higher up the value preservation
cascade or avoiding food waste flows. In the Flemish context, valorisation is a general term that covers any
destination for food waste flows, except dumping and incineration.

Flemish vs. European policy framework
In Flanders, all food waste flows from every link in the chain, from harvest-ready/slaughter-ready to
consumption, are mapped out. This includes all the destinations of these food waste flows, not just the food
waste. Shifts can be detected in this respect. Taking food waste flows as the scope gives a more complete

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picture of how resource-efficient the food system is and where potential for improvement still exists. The
European and international focus is on just one part of the food waste flows, i.e. the food waste.
The following diagram illustrates the relationship between the Flemish and European frameworks. The green
and grey boxes are food waste flows. Food loss is the edible part of the green and grey boxes, by-products are
the non-edible part of the green and grey boxes. The green boxes are food waste. The definition and
delineation of food waste according to the FAO (Sustainable Development Goals) are more or less the same as
those used in Europe.
Figure 6: Schematic integration of the Flemish and European frameworks for food waste flows

The concept of food waste only takes into account a limited proportion of agricultural food waste flows. For
Europe, only food waste flows that leave the farm and are given a waste destination are counted. The FAO also
considers on-farm flows. The concept of food loss refers to when crops are ready for harvest and animals are
ready for slaughter. Pre-harvest losses fall outside all three frameworks.

As such, we in Flanders are continuing the line of the chain roadmap: we strive for less food loss and high-
value valorisation in every link of the chain, including the primary sector. Every link in the chain contributes to

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reducing food loss. The agricultural sector is also committed to reducing food loss, the importance of which is
recognised (economic, sustainability, etc.).

4.2 APPROACH
As explained above (section 3.2), the strategy of this action plan consists primarily of increased prevention.
Besides prevention, the focus is also on more separate collection. The last step is a higher value valorisation .
The strategy behind this action plan does not aim to regulate the primary production of biomass in agriculture
but to avoid food losses and close the loop in the primary sector and the entire chain. Applied to the producer
to consumer waste flows, this means the following:

• Prevention. Prevent as must food loss in the chain as possible. To do this, this action plan strongly
emphasises an approach involving the entire chain. Where surpluses cannot be avoided, maximum
valorisation must be created for human consumption through donation or processing (= reuse), provided
that food safety is not compromised;
• Separate collection. Food losses that occur despite preventative measures are given a second life, just like
the unavoidable by-products after separate collection;
• Valorisation. Each valorisation step is carried out with the optimal destination in mind for animal feed, by
means of composting/fermentation, and as industrial raw material (including bio-based applications),
organic carbon or nutrient source.

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Figure 7: Cascade for the food loss cycle and food waste flows from producer to consumer
This figure only explains the ranking of the steps in the processing hierarchy for biomass waste flows and does
not draw conclusions about the ranking of energy applications, as this depends on the specific characteristics
of each technology and related energy applications.

PREVENT
at source: priority
throughout the chain

LAND-FILL
or similar (e.g. discharge)

INCINERATION WITHOUT ENERGY RECOVERY
INCINERATION AS RESIDUAL WASTE (1)
MATERIALS
possibly combined with energy (e.g. biobased
materials, fertilizer or soil improver), soil

FOOD
for humans

FEED
for animals

Prevention/
Reuse
Recycling of
material
Energy
recovery/Remova
l
MONO-INCINERATION WITH ENERGY
RECOVERY (e.g. Bio-CHP, biofuels, etc.)

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4.3 TARGETS FOR 2023, 2025 AND 2030

Targets for the end of 2023
► All food retail (specialised and non-specialised), all food wholesalers and all food distribution centres
to contribute to food donations and/or some other form of redistribution of food products for
human consumption.
► Business to collect food waste separately.
Targets for the end of 2025
► The entire chain aims to avoid, re-process or valorise at a higher value 30% of food losses 21 compared to
2015.
► Residual waste from businesses (hotels, restaurants, catering, hospitality, retail) to decrease by 20%
compared to 2019.
► Optimum valorisation of food waste flows; where this is not yet happening although it is possible and
legally permissible, the aim is to valorise them higher up the cascade 22 (higher cascade index compared
to 2015).
Targets for the end of 2030
► Flanders contributes to the UN Sustainable Development Goals (SDG 12.3) with actions to reduce
food waste in primary production, horticultural cooperatives, the food industry, food retail and
distribution, restaurants, catering and households. SDG 12.3 aims to halve food waste per capita
worldwide by 2030, at retail and consumer levels. SDG 12.3 also aims to reduce food losses
throughout our food production and supply chain.
► Contribution to the next target of the European Waste Framework Directive: At least 60% of municipal
waste to be reused or recycled.

The targets for the end of 2023, 2025 and 2030 are based on:

• the targets in the Waste Framework Directive 851/2018 (art. 9 prevention, art. 11 recycling, item 31);
• the ambition of the Government of Flanders, see Coalition Agreement 2019-2024
By the end of 2023 at the latest, the European Commission will examine whether to set a European food waste
reduction target for 2030, based on data from the Member States. In any case, a mix of support measures and
actions will be necessary to achieve this target.

Relation between Flemish, European and UN targets

21 Indicative target that applies for the entire Europ ean Union
22 Subject to what is logistically justifiable in the case of small quantities or, for example, an except ional food crisis situation.

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The Flemish targets for 2023-2025 contribute to the indicative target of -30% food waste by 2025, as defined
in the European Waste Framework Directive. Both the prevention of food losses (prevention, reuse,
reprocessing at food) and the valorisation of food losses and by-products in animal feed or as bio-based
materials, implies a reduction in food waste. The separate collection of food waste at the end of the chain for
fermentation/composting does not contribute to the reduction of food waste as defined by the EU. But reuse
for food or feed is not possible here. By keeping as much food waste as possible out of residual waste and
valorising in advance, we are already taking a step forward. Separate collection is a condition for higher value
valorisation in the future.

The Flemish target focuses on food loss rather than on food waste. This can be explained as follows:
- From a European perspective, we in Flanders are already further ahead than many other regions when
it comes to food waste. We have a long tradition of waste prevention and separate collection, so the
low-hanging fruit has already been picked. This means realistic and ambitious targets are needed
which are tailored to Flanders' as a pioneer. The European framework imposes monitoring obligations,
but there is no binding target for reduction yet. There is room for flexibility and interpretation of the
target based on the local context.
- Avoiding food loss is a priority.
- If we focus on food waste, the 30% prevention target is unrealistic because of the unavoidable by-
products such as bones, peelings, etc. In Flanders, we have a large quantity of unavoidable by-
products in the food industry, much of which is already being used at its highest possible quality, for
example in animal feed and fermentation. Legal provisions play a role in the limited space left for
higher valorisation. The focus on food waste widens the field of action but contributes to the
European target of reducing food waste.

By the end of 2023 at the latest, the European Commission will examine whether to set a legally binding
European food waste reduction target for 2030, based on data from the Member States. In any case, a mix of
support measures and actions will be necessary to achieve this target.

The Flemish targets for 2023-2025 are also in line with the SDG targets for 2030. On the one hand, these focus
on reducing food waste at the beginning of the chain (not quantified) and halving food waste at the end of the
chain (retail and consumption). Avoiding food losses and providing additional incentives for separate collection
at the end of the chain (with a view to higher value valorisation in the future) will contribute to the
quantitative target.

4.4 MORE PREVENTION AND REUSE, LESS LOSS
4.4.1 Strategy

This action plan focuses on actions that can be leveraged to achieve maximum impact.
Applying the cascade principle is paramount in this respect.

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The food loss target for 2025 states:
“The entire chain aims to prevent 30% of food losses or valorise them to a
higher degree than compared to 2015. ”
This implies:

- An increase in donations from the primary sector, horticultural cooperatives , food industry and retail.
Based on the current trend and capacity, the target is a minimum of 18,000 tonnes more food to be
donated in 2025 compared to 2015;
- More food losses and food (waste) flows from the primary sector, horticultural cooperatives , food
industry and retail that are valorised as food, animal feed or bio-based materials, provided they meet
the legal requirements;
- Separately collect residual waste from retail, hotels, restaurants, catering and households and valorise
this waste by composting or fermentation. Valorisation of (kitchen) waste as food and feed is not
permitted.

The measures under (b) and (c) are also pursued for by-products.

What quantities does this concern?
In 2015, 907,000 tonnes of food loss occurred. To reduce this by 30% or to valorise it more highly by 2025
means a reduction of 272,000 tonnes (if we exclude economic growth). The various arrows in the figure
illustrate this.

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Figure 8: General application of the cascade principle and 2025 food loss target.

This figure only explains the ranking of the steps in the processing hierarchy for biomass waste flows and does
not draw conclusions about the ranking of energy applications, as this depends on the specific characteristics
of each technology and related energy applications.

The graph below gives a rough relative indication of the '30% reduction or higher valorisation of food loss'
target per link in the chain compared to the baseline measurement from 2015. Economic growth is not
included in the figures as it is difficult to estimate.
PREVENT
at source: priority
throughout the chain

LAND-FILL
or similar (e.g. discharge)

INCINERATION WITHOUT ENERGY RECOVERY
INCINERATION AS RESIDUAL WASTE (1)
MONO-INCINERATION WITH ENERGY
RECOVERY (e.g. Bio-CHP, biofuels, etc.)
MATERIALS
possibly combined with energy (e.g. biobased
materials, fertilizer or soil improver), soil

FOOD
for humans

FEED
for animals

Prevention/
Reuse
Recycling of
material
Energy
recovery/Removal
Target: reduction of 272,000
tonnes of food loss

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Graph 1: Estimated 30% reduction in food loss per link in the chain for the period 2015-2025, based on the three strategic lines:
donation, valorisation as food or feed, or separate collection and valorisation (retail, catering, hotels, restaurants, households). Source:
Baseline food loss monitoring

Within the value preservation cascade, chain perspective and cooperation in the chain play a leading role. This
results in seven focus points:

1. More cooperation projects within product chains will be created to deal with priority food losses .
Businesses from a number of product chains (primarily fruit and vegetables, dairy, bread, potatoes, meat and
fish) are joining forces. The choice of product chains may be adjusted over the course of the prevention plan.

2. Sector-specific programmes must implement on a broad scale the actions for food waste and
engender consensus. Because they are tailor-made, they meet the various needs in the chain. They support
businesses that want to measure their food loss, set up preventive actions, share knowledge, raise the bar and
take steps forward.
The action plan focuses primarily on programmes for sectors where quick wins can be achieved:

0 50.000 100.000 150.000 200.000 250.000 300.000 350.000 400.000
bij consumenten
in horeca en catering (out of home)
in retail
van voedingsindustrie (naar food/feed)
in de landbouwsector/veilingen (naar food/feed)
tonnes
Reduction of food loss or high-value valorisation
totaal voedselverlies 2015 - 30% (doelstelling 2025)
from food industry (to
food/feed)
in the primary sector/auctions (to
food/feed)
in horeca/catering (out of home)
in retail
total food loss 2015 - 30% target 2025
from consumers

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1. Industrial kitchens, with the focus on independent industrial kitchens (in-house);
2. Restaurants, with the focus on independent restaurateurs (no chains);
3. Retail, with the focus on small (F3) and medium-sized (F2) retail;
4. Food industry, with the focus on SMEs (based on existing audit/materials scan);
5. Agriculture, with the focus on horticulture.

The programmes are meant primarily, but not exclusively, for businesses that have yet to take their first steps
towards measuring and taking action.

3. The consumer is also an important link in reducing food loss. Integrated interventions from the chain
(e.g. focus on products and consumption environment) help to minimise the risk of food loss by consumers
and in the consumption stage in hotels, restaurants, catering and retail sectors. These interventions and their
broad implementation are central to the approach. They are reinforced by actions to increase consumer
awareness and provide education.

4. Network of regional distribution platforms and food hubs scale up social circular entrepreneurship.
Food surpluses should go to human consumption wherever possible through redistribution or processing.
Expanding the existing distribution network of food banks and regional distribution platforms, starting up and
testing food hubs for processing of food surpluses and strengthening cooperation with the suppliers and
processors of food surpluses is key to this approach. Cooperation with social employment could also offer
more flexibility for processing surplus vegetables, fruit, etc. into food. Fair cooperation between the social and
regular economies remains an issue.

5. Support the start-up and impact of food waste innovators. Food waste innovators (e.g. young
companies and start-ups such as Foresightee, TooGoodToGo, etc.) play an important role in reducing food
losses through their new initiatives. With the right support, they can be more successful and have a greater
impact.

A number of food loss solutions have a return on investment: start-ups create added value by offering new
products or services that
can find a place in existing businesses or chains.

6. Support local administrations to adopt a local steering role Citizens, civil society, businesses and
public authorities have lots of ideas regarding food losses. This creates a great diversity and volume of actions.
Local authorities such as cities and intermunicipal partnerships must receive support to take firm control and
to increase the impact of these bottom-up initiatives. This action plan builds a framework for local
governments to find solutions around food loss, to give a platform to bottom-up initiatives and to facilitate
cooperation with actors at the local and supra-local levels.

Local authorities also receive encouragement for actions or strategies to prevent food loss. By 2025, half of
local authorities should be implementing such actions. These actions or strategies can be part of a local climate
plan, waste policy or food policy, with maximum support for social circular initiatives (see above).

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7. Stimulate domestic recycling Any kitchen waste avoided by families means that it does not require
collection or processing. Domestic recycling offers a lot of potential and therefore deserves more attention
and resources. Home composting of kitchen and garden waste can only be done in households and for
educational purposes. It must be done correctly. Businesses are not allowed to do it because they cannot close
the cycle in a qualitative way. Businesses in the catering industry, for example, have to comply with food
safety regulations.

Efforts on prevention and reuse of organic waste flows in households will continue and be intensified where
feasible. Waste flows that are difficult to reuse or process through home composting are given special
attention. Prevention of non-recyclable or non-compostable products containing biowaste after use (e.g.
coffee pads) should prevent these flows as much as possible. It is up to the sector to work on a roadmap
whereby, for example, industrially compostable coffee pads can be effectively processed as fully compostable
material instead of in residual waste.
4.4.2 Targets for 2023/2025

Targets for the end of 2023
► All food retail (specialised and non-specialised), all food wholesalers and all food distribution centres
to contribute to food donations and/or some other form of redistribution of food products for
human consumption.
Targets for the end of 2025
► The entire chain aims to avoid, re-process or valorise at a higher value 30% of food losses 23 compared to
2015.

4.4.3 Action programmes
AP 1.1. Encourage collaboration within product chains

APPROACH
Actors from all economic links (excluding the consumer as separate actions are planned in this regard) are
given an active role and are involved in concrete cooperation projects in order to evolve towards an even
more efficient chain. The focus is on loss flows involving actions that may lead to high impact results. Economic
factors such as opportunity costs and added value creation remain points of attention. The first objective is the
prevention of food loss. If prevention is really not possible, actions for redistribution, reprocessing or
valorisation can also be set up. The cooperation around one product (group) creates a shared responsibility
and makes the cooperation in the chain concrete. The following approach is a guide for the different product
chains. Steps may be shorter or longer, depending on circumstantial factors.

23 Indicative target that applies for the entire Europ ean Union

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Step 1: Initiate product chain consultation and analysis phase:
• Bring together relevant actors per product chain;
• Gather existing figures and insights, survey, etc.;
• Identify priority food losses within the product chain and uncover the main causes;
• Determine the focus for step 2 by using explicit selection criteria:
o product(group);
o location (where in the chain);
o solution type: pure prevention, redistribution or reprocessing, valorisation.
• Reporting.

Step 2: Find and test solutions/innovations with impact through pilot projects in companies:
• Involve new partners after selecting products and steps in the process with significant food loss;
• Explore solutions/innovations. They can be completely new or under development, or build on what
already exists. Illustrative examples:
o Alignment production (food industry) and demand (retail) (prevention);
o scalable product innovation, e.g. processing surplus bread into beer (reprocessing);
o partnership for social 'cold chain' for unavoidable dairy surpluses (redistribution).
• Propose the solutions with most impact:
o set up concrete pilot projects to test the feasibility and measure the effects;
o map out already proven effects when building on something existing.
• Learn from the pilot projects and share the results;
• Reporting.

Step 3: Promote the application of these solutions/innovations:
• Involved sector federations are committed to promoting the application of successful
solutions/innovations;
• Involved actors take relevant actions and communicate to the initiator;
• Monitor progress using the formulated indicator.

The initiator initiates, ensures good cooperation between the partners involved, is the point of contact and
reports. The duration and outcome of step 1 depends on the availability of data and the results of, for
example, previous projects. At the start of step 2, another partner may be appointed as lead partner,
depending on the focus in the chain. This is also true for step 3.

This action programme focuses on the cooperation of all actors within the product chain. The product chains
for fruit and vegetables, dairy, bread, potatoes, meat and fish have priority. The action table in Annex 9.10
lists the initiator and partners for each action, as well as the timing and financing.

Indicator AP 1.1: number of cooperation projects per product chain implemented with positive impact on pure
prevention, redistribution/processing, valorisation

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AP 1.2. Set up sector-specific programmes

APPROACH

Sector-specific programmes implement interventions to curb food loss on a large scale. These tailor-made
tools support companies in measuring their food losses, developing preventive actions and sharing their
knowledge as a sector. They attempt to raise the bar and make steps forward.

It is recommended to develop a sector programme through cooperation between the sector organisations in
question, experts, relevant authorities, knowledge institutions, and by involving companies/pioneers that are
already active. Once the programme is up and running, the aim is to encourage as many businesses as possible
to participate.

The central principle for supporting businesses is 'Target, Measure, Act', an effective approach to tackling food
loss at the organisational and/or business level. Measuring food loss is the essential first step for any
organisation to be able to reduce food loss, and not only because it raises awareness. Measuring also allows
for targeted actions to be taken and adjusted at the organisation and/or company level afterwards. The
implementation and interpretation is sector-specific: the way of measuring and the support that organisations
need for this differ from sector to sector.

The organisations/businesses in question are encouraged to share their knowledge with the other companies
participating in the sector programme. The initiators of the sector programmes and the involved sector
federations facilitate this exchange.

A sector programme comprises four sections:

- MEASURE
o Develop a simple measurement system with standardised indicators, methods and definitions,
and test it.
o Identify needs for measurement support and develop the support.

- ACTIONS
o Promote a sector-wide measurement campaign that encourages businesses to participate in
the sector programme.
o The participating businesses carry out two measurements: a baseline measurement and a
follow-up measurement (after the implementation of actions).
o Based on the results of the measurement, the participating businesses undertake actions
aimed at pure prevention or the reprocessing/redistribution of the surpluses. Better
valorisation can also be one of the actions, but the prevention of food loss remains the
priority.

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- SHARE
o Participating companies are encouraged to share the results of their measurements (the data,
to be consulted in which format) and the actions taken with the other participants of the
sector programme. The involved sector federations facilitate this exchange.

- REPORT PROGRESS
o Annual reports provide information on the number of participating companies, the actions
they take and the achieved reduction in food loss. This is done at an aggregate level (e.g.
average x% reduction between baseline and follow-up measurement) and serves to provide an
overview of the potential of certain actions.

The initiator of a sector programme initiates, ensures good cooperation between the partners involved, is the
point of contact and reports. The Government of Flanders is the initiator for the first part; chain partners take
the lead from part two onwards.

Companies that are already active in food loss prevention (measuring + actions) can join the sector
programme and share their methodology, the results of their measurements and their actions.

The focus of this action programme is on the sub-sectors where, based on the Flemish food loss monitoring
system, most kitchen waste still ends up in residual waste, for example SMEs, small and medium-sized retail
businesses, independent industrial kitchens, independent caterers and sectors with seasonal surpluses such
as horticulture . The action table in Annex 9.10 lists the initiator and partners for each action, as well as the
timing and financing.

Indicator AP 1.2: number of participating businesses and % of food loss reduction per sector programme
AP 1.3. Reduce food loss at the consumer end of the chain

APPROACH
The previous planning period (2015-2020) shows that households need to be supported in an integrated way
to manage their food differently. At the time, the focus of the actions was on the quantitative analysis of food
losses in Flemish households, research into the underlying causes and sharing the results of these analyses.
This shows that awareness-raising alone is not enough.

Consumers, chain actors and government must join forces and each make a contribution in order to reduce
food losses by consumers. To achieve effective results on a sufficiently large scale, the chain must set up and
widely apply effective 'technical' interventions aimed at avoiding food losses by consumers.

Well-chosen technical interventions are examined for their impact and promoted extensively if they prove
effective. Education and raising awareness also remain important.

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Three promising interventions are expected in the planning period for the different sectors (food industry,
retail, hotels and restaurants, catering) and for the local authorities. They can build on existing interventions.
The interventions may still be under development or completely new. They are tested (via pilot projects or by
means of effects already demonstrated by existing interventions) and promoted (e.g. sector guidelines).
Ideally, the focus should be on the most important loss items at the consumer level.

The following table shows examples of possible actions. It's worthwhile finding the most promising of these
actions.

Link Example of interventions
Food industry Adjustments to packaging, standardisa tion (communication) of best-before dates,
portioning, promotions
Retail In-store communication, promotions, quick sa les, explaining the meaning of the
best -before date
Hotels and
restaurants, catering
(schools, companies,
government, care)
Communication, menu choices, pricing to avoid food loss, service adjustments,
portion sizes, payment options
Local authorities Restorestje (doggybag), Foodbattle

The initiator of an action initiates, ensures good cooperation between the partners involved, is the point of
contact and reports.

The following four sectors – food industry, retail, hospitality and catering – have a strong link to the consumer.
Local authorities also have an important role to play.
This action programme therefore focuses on these four
sectors. In addition, specific actions exist to raise awareness and educate. The action table in Annex 9.10 lists
the initiator and partners for each action, as well as the timing and financing.

Indicator AP 1.3: Number of promising interventions per sector (minimum 3 in planning period)
AP 1.4. Scale up social circular entrepreneurship

This action programme must ensure that food surpluses are consumed by people as much as possible. The
focus is on expanding the existing distribution network of food banks and regional distribution platforms and
strengthening cooperation with the suppliers and processors of surplus food.

Indicator AP 1.4: Quantity of surplus food distributed and/or processed
ACTIONS

Action 1.4.1. Strengthen the network of regional distribution platforms

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This action focuses mainly on scaling up social circular entrepreneurship by strengthening distribution
platforms and expanding cooperation with provincial food banks. A food bank is already active in each
province for the distribution of food surpluses in Flanders. In a number of regions or (major) cities, distribution
platforms are also active. The aim is to further support the distribution platforms that have proven their
effectiveness during the planning period and to expand them if possible. The aim is also to facilitate the start-
up of new distribution platforms in areas of high unemployment and poverty. Cooperation and
complementarity with the food banks are important in this respect. This requires structural (public and
private) funding to maintain the current distribution platforms and food banks and to expand into new
regions.

Initiator: Herw!n/Foodsavers

Partners: Association of Flemish Cities and Municipalities (VVSG), Belgian Federation of Food Banks, Social
organisations (e.g. social grocers, etc.)

Action 1.4.2. Facilitate the processing of food surpluses by setting up food hubs

The existing food surpluses are far too great to be distributed through distribution platforms. Facilitating the
processing of these surpluses means more surplus food can be used for human consumption. The lack of
processing units that can be deployed in a flexible manner and on a wide scale to process surplus fresh
produce at logistics hotspots is a major bottleneck in this respect. Cooperation with businesses in the social
economy can provide the necessary flexibility. For example, a Flemish public-private pilot project has just
started for a food hub where food surpluses (and possibly also local short-chain products) are brought
together, sorted, distributed but also processed/marketed for human consumption. This food hub is
embedded in the network of regional distribution platforms and food banks and can provide inspiration for
similar hubs aimed at bioeconomy applications (non-food).

Initiator: Herw!n/Foodsavers
Partners: Association of Flemish Cities and Municipalities (VVSG), Short Chain Centre of Expertise, Department
of Agriculture and Fisheries, VBT, ILVO

Action 1.4.3. Use of the digital platform to align donations and redistribution

All the tools (ideally on one platform) for registration, storage, stock management, planning and distribution of
surplus food for human consumption are being aligned.

Initiator: Herw!n/Foodsavers

Partners: Belgian Federation of Food Banks (including Food IT), Association of Flemish Cities and Municipalities
(VVSG)

Action 1.4.4. Explore an enabling policy framework for donations

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All food retail (specialised and non-specialised), all food wholesalers and distribution centres are expected to
contribute to food donations and/or some other form of food redistribution (see item 4.3.2) by the end of
2023 at the latest.

How donations
can be further encouraged through the targeted raising of awareness, incentives (e.g. Green
Deal, tax incentives), administrative rules or regulations (e.g. including donations in public tenders and
simplifying administrative obligations) is currently being investigated. This does not only concern government
measures but also how companies can contribute by taking control of transporting their own food surpluses
for example. The aim is to come up with recommendations that will be discussed with the relevant authorities
and federations. Solutions with sufficient support from the actors involved can then be implemented.

Initiator: Herw!n/Foodsavers, Belgian Federation of Food Banks

Partners: Comeos Vlaanderen, Flemish Food Industry Federation (Fevia Vlaanderen), agricultural organisations
(including Algemeen Boerensyndicaat and the Belgian Farmers' Union), VBT, Flanders Institute for Logistics
(VIL), Association of Flemish Cities and Municipalities (VVSG), FAVV

AP 1.5. Support food loss start-ups

Businesses that reduce food losses using innovative ideas (such as waste innovators, young enterprises and
start-ups) must be given the right support to bring these innovations to the market successfully and create an
impact. However, great care must be taken not to create an oversupply of start-ups as this would have the
opposite effect. This programme organises various actions in this respect.

Indicator AP 1.5: Number of projects with impact

ACTIONS
Action 1.5.1. Food Waste Incubator: guidance and support for innovative food waste start-ups

Start-up entrepreneurs who set up innovative projects to reduce food loss are an important lever. Good
support and guidance increases their chances of success.

Initiator: FoodWIN

Partners: Flanders’ FOOD, Rikolto, EIT FOOD, Institute for Agricultural and Fisheries Research (ILVO)

Action 1.5.2. Aligning innovators with existing industry

Cooperation between food waste innovators and the existing industry is crucial to be able to grow and have an
impact.

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Initiator: Flanders’ FOOD

Partners: FoodWIN, EIT FOOD, Rikolto, Institute for Agricultural and Fisheries Research (ILVO)

Action 1.5.3. Strength the Food Waste Alliance partnership

Entrepreneurs who develop their business models to tackle food loss can strengthen their impact by joining
forces and working together wherever possible. Food Waste Alliance, a partnership of the most important
current entrepreneurs tackling food loss in Belgium, promotes this cooperation.

Initiator: FoodWIN

Partners: Coduco, Serendipity, Level IT, Eatmosphere, Herw!n/Foodsavers, Rekub, WOWfood, TooGoodToGo

Action 1.5.4. Food Waste Awards: the spotlight on pioneers

The Food Waste Awards highlight pioneers in tackling food waste. This motivates pioneering businesses to
continue to make progress. They also inspire other stakeholders with successful existing solutions. The Food
Waste Awards aim to create positive dynamics between actors of the same type (such as local authorities, care
sector, social economy enterprises, food companies and entrepreneurs) so that they can learn from each other
and encourage future actions on food losses. Bringing these actors together at an annual award ceremony also
enables cross-fertilisation of ideas.

Initiator: FoodWIN

Partners: depends on the annual target groups

AP 1.6. Support local authorities in their local steering role

At the local level, successful experimentation has resulted in solutions to prevent food loss. Local authorities
must learn lessons, gain an insight into best practices, and scale exchanges up to a higher level. The intention
is to see where the biggest gains can be found, to focus on those solutions and interactions, and subsequently
make the best use of time and resources to have more impact. This action programme helps local authorities
adopt their local steering role.

Indicator AP 1.6: Number of local authorities setting up actions or developing/implementing food strategies.

ACTIONS

Action 1.6.1. Support local authorities to set up actions

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Local authorities that want to develop actions or a local food (loss) strategy are provided with information,
tools, expertise, best practice examples, indicators and a communication framework. The support for local
authorities is tailor-made. The Association of Flemish Cities and Municipalities (VVSG) receives funds from the
Flemish Land Agency (VLM) (rural policy) for 3 years (2020-2022). In terms of content, support is provided
within the framework of the C-MART Life, project C-11.

Initiator: VVSG.

Partners: local authorities, intermunicipal associations, FoodWIN, expert organisations, the food banks,
Flemish compost organisation (Vlaco)

Action 1.6.2. Facilitate sharing to set up, monitor and evaluate actions

Exchanges and cooperation between local administrations is facilitated to encourage the sharing of
experience. This is why the local food loss network continues. Local authorities share good practices through
this network and organise targeted sessions.

Initiator: VVSG

Partners: local authorities, intermunicipal cooperatives, civil society organisations, FoodWIN, Belgian
Federation of Food Banks, Vlaco, OVAM, Department of Environment and Spatial Development

Action 1.6.3. Promote the integration of social and circular entrepreneurship in local food (loss) strategies

Local governments support social and circular initiatives and, where possible, integrate the initiatives into their
own strategies. This may be in the form of support for food distribution platforms or cooperation with food
banks.

Initiator: VVSG

Partners: local entrepreneurs, civil society organisations, FoodWIN, Herw!n/Foodsavers, Belgian Federation of
Food Banks

AP 1.7. Stimulate domestic recycling

This action programme focuses on guiding and informing home composters or people who do domestic
recycling. The consumer closes the biological materials cycle by processing kitchen and garden waste at home.
This can be done both by feeding kitchen scraps to pets or chickens and by composting kitchen scraps at
home. The actions support the following goals:

• A change in behaviour among citizens and consumers when it comes to food losses and garden waste;
• Less organic biological waste in the residual waste bag;
• Climate change in cities.

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In 2018, 41% of the population was doing home composting. The aim is to keep this percentage at least the
same in 2025 by committing to the actions below.

Indicator AP 1.7: % of the population composting/recycling food loss and garden waste at home
ACTIONS

Action 1.7.1. Training and knowledge sharing on closing the cycle at home

Information is disseminated on recycling techniques such as home composting, low-waste gardening, keeping
chickens (that eat vegetable kitchen scraps) and circular gardening. Positive results are achieved through
targeted actions to encourage knowledge sharing about growing, sharing, storing and processing of food and
leftovers, and by means of tools and campaigns on what to compost and not to compost at home. Attention to
healthy gardening will also be taken into account, as well as increasing consumer knowledge, e.g. by providing
tips and recipes to reduce food loss and process food leftovers. Domestic recycling behaviour and its evolution
are charted and actions can be adjusted by continuing the six-yearly survey in Flanders.

Volunteers are involved in the actions, for example with local projects and training for volunteers.

Domestic recycling is a message for all target groups, young and old. So the actions focus on:
• schools, youth associations, etc.;
• citizens and consumers;
• new target groups (chicken campaigns for young families, budget cooking workshops aimed at
disadvantaged citizens to create meals from leftovers, etc.).
This action is also implemented as part of C-MART Life, project C-11.

Initiator: Vlaco
Partners: intermunicipal associations, VVSG/Interafval, sustainable cities and municipalities (e.g. Bruges,
Ghent, etc.), OVAM, Society for Ecological Living and Gardening (Velt), Tuinhier, etc.

Action 1.7.2. Embedding domestic recycling in local policy (SDG)

By promoting domestic recycling, municipalities contribute to the UN's Sustainable Development Goals (SDGs).
One third of the Flemish municipalities/intermunicipal partnerships have already started working with the
SDGs. The focus of this action is on a series of good practice projects to communicate about and from which
other authorities can learn. This action is also implemented as part of C-MART Life, project C-11.

Initiator: Vlaco
Partners: intermunicipal associations, VVSG/Interval, etc.

Action 1.7.3. Linking domestic recycling themes to water (e.g. less surfacing), climate, biodiversity, etc.

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Domestic recycling has a positive effect on:
• the water issue: soil cover helps avoid weeds so there is less reason to provide paving; this also
reduces water run-off;
• the climate: using more compost ensures better water retention, mulching prevents the soil from
drying out and stimulates soil life;
• biodiversity: by paying more attention to all kinds of animals in the garden, for example by using
pruning waste as nesting places for animals (bee hotels or a dead hedge).

In this respect it is important that the cycle is kept as pure as possible (keep pesticides to a minimum, weed-
free management, etc.) depending on the location and respecting the sorting rules to separate biowaste that
can be composted at home. This is important in order to prevent diffuse soil pollution.

This action is aimed at citizens, public authority gardening services and businesses.
Every two years, a theme is selected and a sample project is developed with the stakeholders.

Initiator: Vlaco
Partners: VVOG, VVSG/Interafval, OVAM, Natuurpunt, Dept. Environment and Spatial Development, etc.

4.5 BETTER SORTING AND COLLECTION
4.5.1 Strategy
European Directive 851/2018 (Waste Framework Directive) requires Member States to separate and recycle
biowaste 24 from businesses and households at source or to separately collect and recycle such waste, by 31
December 2023. In Flanders, strict sorting and acceptance rules must lead to pure, high-quality flows.
Thorough and conclusive quality assurance enables valorisation of animal feed, composting and fermentation
for example.

The rate for residual waste collection and processing by businesses should be higher than that for separate
collection and processing of kitchen and food waste . This is an important precondition for separate collection.
For this reason, the possibility of phasing out the charges for residual waste containers based on volume is
being considered. The discussions are focussing on introducing, refining and extending differential pricing
(diftar) to increase the separate collection of organic biological waste and thus reduce the volume of residual
waste.

For our economy to evolve towards a bio (-based) economy, good separate collection is increasingly
important. Recycled raw materials (after biological processing) can then replace scarce raw materials.

24 The term biowaste is used because it is the term u sed in the European Directive. See Annex 9.1 for th e definition.

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To ensure a food (waste) flow is considered for use in industry, the supply of raw materials must always be
sufficiently large, with guaranteed quality and purity.

Based on experience in the Netherlands and Flanders, the presence of plastics in the separate collection chain
for organic biological waste has a detrimental effect on sorting and recycling quality, even if the materials are
biodegradable or fully compostable. For this reason, they may not be collected separately as biowaste in
Flanders. The compostable collection bags for VFG household waste that are made available by the local
authorities in kitchen buckets or as collection containers are an exception.

So before other biodegradable and/or compostable materials are introduced into the economy, their impact
on the materials cycle must be considered. Here we refer to the connection between this Action Plan and
Action 7 of the Plastics Action Plan (OVAM, 2020). The aim of this action is to draw up a positive list of
applications where biodegradable/compostable plastics can prove their added value based on a number of
criteria. For the biological cycle, this is illustrated by the following example of a compostable tea bag.

Because of the importance of clear and enforceable sorting rules, the following principles are key to the
creation of this positive list:
- There must be a clear connection with the organic biological material. A compostable tea bag is
desirable, however, a compostable shoe is not;
- Compostable products must add value to the processing (composting or fermentation). Example: By
making a tea bag compostable, the contents can also be composted;
- The products can only be found in shops in compostable form. This implies that specific legislation
must be developed for this purpose.
A Green Deal provides is a possible avenue to put these products on the positive list, given recent
developments in the manufacturing sector of compostable coffee and tea bags, pads and capsules.

Translation of the European Directive for businesses and households

Businesses
Certain sectors are required to collect organic biological waste separately.

On 22 March 2019, the Government of Flanders approv ed the mandatory separate collection of kitchen and
food waste in certain business sectors with effect from 1 January 2021. This requirement applies to:
- companies and institutions where hot meals are served or prepared regularly and at least once a week:
• Educational institutions with more than 300 pupils;
• Hospitals and psychiatric hospitals with more than 25 authorised beds;
• Residential care centres with a capacity of over 30 beds;
• Penitentiary centres;
• Barracks of the armed forces with more than 100 employees;

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• Companies and institutions with more than 10 employees;
• Restaurants, brasseries and hotels serving more than 50 meals per day;
• Banquet halls and multipurpose venues with a seating capacity of more than 250 places;
• Catering businesses.

- supermarkets and hypermarkets with a net sales area of at least 400 square metres.

From 31 December 2023 at the latest, the remaining business sectors must also collect their biowaste
separately in accordance with the Waste Framework Directive.

Smaller companies with a biowaste (VFG) volume comparable to households can either use the services of a
private collector or join the collection round for VFG, depending on the VFG region.

Households
The separate collection of VFG and green waste by citizens can still be improved, however, this is not yet
obligatory in all municipalities.
The applicable regulations are contained in the implementation plan for
Household Waste and Similar Commercial Waste. The plan expires at the end 2022.

A task force will be set up by OVAM, in consultation with all stakeholders, to explain the options to local
authorities concerning the implementation of the Waste Framework Directive. The directive requires Member
States, by 31 December 2023, to separate and recycle biowaste from businesses and households at source or
to separately collect for recycling.
This will be the ongoing focus of C-MART Life, project C-10.

The strategic principles include:
- to further promote qualitative circular gardening and home composting;
- to facilitate maximum participation in biowaste collection with the aim of significantly reducing biowaste in
residual waste, including measures to increase ease of use, smart pricing and collection frequency;
- to ensure separately collected biowaste is of the desired quality and kept at this level, as stipulated in the
Household Waste Implementation Plan;
- maximum recovery of nutrients and organic carbon through the production of high-value fertilisers and soil
improvers.

The generalisation of separate collection must be supported by the necessary capacity planning. Additional
capacity may be required depending on the collection options chosen. If additional capacity is needed for VFG
waste, fermentation installations with post-composting are preferred.

The conclusions of the task force will be drawn up by the end of 2021 as input for the new Household Waste
Implementation Plan and for the roll-out of separate collection of biowaste throughout Flanders by 31
December 2023 at the latest.

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The stakeholders involved are the local authorities/intermunicipal cooperatives, VVSG-Interval, Vlaco.

4.5.2 Targets for 2023/2025

Targets for the end of 2023
► Business to collect food waste separately.
Targets for the end of 2025
► The entire chain aims to avoid, re-process or valorise at a higher value 30% of food losses 25 compared to
2015.

4.5.3 Action programmes
AP 1.8. Improve separate collection of kitchen and food waste from businesses

All the actions of this action programme focus on improving the separate collection of kitchen and food waste
from businesses. The focus is on informing, raising awareness, encouraging and monitoring separate collection
of these specific waste flows.
The optimisation of the separate collection of VGF waste from households is
included in the Household Waste Implementation Plan.

An important point to note, however, is that separate collection in some situations and for certain companies
may prove more expensive than using the residual waste flow. This is due to a range of factors, such as the fact
that separate collection usually requires additional transport, the pricing is based on volume rather than
weight and only limited incentives such as premiums are in place for separate collection. This is not only the
case for kitchen and food waste from businesses, but also for various other varieties of waste. That is why the
policy memorandum of the Environment Minister focuses on tailor-made steering measures to make separate
collection more attractive and easier for companies. As a result, this will be an important element in the
flanking policy to ensure the separate collection targets of this action plan are met by certain companies.

Indicator AP 1.8: % increase in participation in separate collection and amount of separately collected waste

ACTIONS

Action 1.8.1. Commit to correct collection and sorting rules and adapt collection frequency

25 Indicative target that applies for the entire Europ ean Union

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Kitchen and food waste is collected individually from businesses. Due to the legal restrictions on self-
processing systems, businesses are not permitted to compost or dry, grind and discharge kitchen and food
waste on site.

The following flows must be collected separately and may not be disposed of with residual waste:
• Peelings, leftovers and surplus of fruit and vegetables;
• Boiled, fried, baked, etc. food leftovers;
• Vegetable, meat, fish leftovers from soup collected with a sieve;
• Coffee grounds;
• Bread (leftovers);
• Kitchen paper towel;
• Paper napkins;
• Withered cut flowers;
• Meat and fish leftovers (fat leftovers, etc.);
• Eggshells
• Unpacked food (not packaging).

The flows must be clean when collected, not in plastic bags. A 100% compostable bag as so-called inliner in the
separate collection container is permitted, as long as the biowaste is transported to a composting plant
(possibly with a preprogrammed fermentation step). Separate collection from companies subject to
mandatory collection is carried out at least once or twice a week, depending on the sector. This collection
frequency is agreed between the collection service and each company. The system is evaluated after two years
and the rules may be adjusted and tightened.
A distinction is made between the regulations for animal and plant-based foods for food companies, food
stores, supermarkets, etc.
This action is also monitored as part of C-MART Life, project C-13 for the food retail
sector.

Initiator: Waste collectors
Partners: Denuo, unpackers, sectors concerned, Vlaco, OVAM

Action 1.8.2. Raising awareness and providing information

From 2020 onwards, OVAM will focus on general awareness-raising among business sectors , umbrella
organisations and companies. They will be informed about the compulsory separate collection of kitchen and
food waste, the sorting rules, the importance of quality, etc. with leaflets, sorting viewers, online messages
and so on.

The sectors are responsible for more targeted awareness-raising and communications, including newsletters
and meetings.

Initiator: OVAM

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Partners: Business sectors, Horeca Flanders, UBC, Fevia, Comeos, UNIZO, Buurtsuper.be, Department of
Education, Milieuzorg op School (environmental care in schools), Department of Welfare, Public Health and
Family, VVSG, Defence, Fost Plus, Denuo, waste collectors

Action 1.8.3. Monitoring and reporting

Waste collectors will collect the correct data and report to OVAM. This will allow OVAM to monitor whether
the obligations regarding separate collection are complied with.

Initiator: OVAM
Partners: Waste collectors, Denuo, VVSG/Inter waste

4.6 HIGHER VALUE VALORISATION
4.6.1 Strategy
Food for humans
The valorisation of food waste flows for human food is at the top of the cascade and falls under prevention
(see 4.3).

Animal feed
A large part of the vegetable (waste) flows from agriculture and the food industry that are not suitable for
human consumption are already being processed into animal feed. In the Belgian compound animal feed
industry, about half of the waste flows come from the food industry, retail, biofuel production and the
biobased industry.

This approach will continue for the next five years: these flows are an economically interesting alternative to
primary (imported) biomass.

Food waste flows can be processed both directly and indirectly (e.g. after heat treatment, after unpackaging,
via insect conversion, etc.). Food safety regulations play a role in this respect. The use of certain food waste
flows such as in animal feed is limited by the strict application of the Animal By-Products Regulation, the
federal HACCP obligations, traceability, etc.

The Federal Agency for the Safety of the Food Chain (FAVV) allows some relaxations of the feed ban
26 . Other
options for use in animal feed are being evaluated at the European level. A positive evaluation will have a
positive effect on materials recycling. The concerned authorities, the Animal By-Products Committee and the
insect platform are monitoring developments.

26 The extended feed ban is a general ban on feeding animal protein to farm animals. There are a number of exceptions. This extended feed ban is being lifted gradually.

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Composting/fermentation
Composting or pre-fermentation with post-composting remains the best available technique for VFG waste
and green waste.

The policy on renewable energy and manure processing launched a solution for wet, fermentable flows in
2010: processing in (co-)fermentation installations.

Closing the cycle stands or falls with the acceptance policy and the quality of the input streams. To avoid
contamination during the production of compost or digestate and because of health risks, no compostable or
non-compostable nappies or incontinence materials, for example, may be processed in composting or
fermentation plants in Flanders. Only substances that are 100% biodegradable and 100% compostable can be
tested and possibly processed in an appropriate composting installation for specific reasons. This is only
possible in exceptional cases, e.g. the so-called inliner (collection recipient). Action 7 of the Plastics Action Plan
(OVAM, 2020) further examines under which conditions and in which applications 100% biodegradable and
compostable plastics can provide added value.

New commercial (waste) flows are regularly offered for composting or fermentation, and these may be
contaminated or of unknown origin, from within or outside Flanders. They are classified in risk classes to
determine which biomass (waste) flows can be used or processed into a soil-improving material or fertiliser.

Intentional dilution is not permitted under the VLAREMA. Dilution combines individual flows that do not meet
the acceptance criteria for use as soil improvers or fertilisers when considered individually. Incineration (with
energy recovery) is only allowed for non-VLAREMA-compliant flows and flows that may not be used for the
production of soil improver or fertiliser for other legal reasons (regional and/or federal).

How composting and fermentation will evolve in Flanders depends on Flemish support for existing/new biogas
installations and on the support framework in neighbouring regions. In the Netherlands, investment in new
large-scale bioenergy projects in the border regions with Flanders are popular due to the modified operating
support in the SDE+ scheme. This may be a pull factor for biogas-rich flows and woody biomass from Flanders.
And this may impact the purchase price of these flows and the profitability of processing in Flanders.

Contribution of fermentable biowaste to the renewable energy target in Flanders
To meet the targets for renewable energy and materials simultaneously, the following is important:
1 Expand pre-fermentation with post-composting Fermentation of VFG waste with post-composting and
biogas recovery produces a better CO
2 balance than incineration. The most suitable fermentation
technique depends on the input flow. Wet fermentation is recommended for a wet flow from the food
industry. Dry VFG waste is preferably processed in a dry fermentation plant. Post-composting of VFG
waste is required for hygienic reasons.
2 Use the available composting and fermentation infrastructure in Flanders efficiently so that as little VGF
waste, green waste and biowaste as possible needs to be exported. Compostable/fermentable food and
biomass (waste) flows that are not yet collected separately and/or that are currently incinerated must be
composted/fermented (e.g. seasonal surpluses or batches in crisis situations, food that must be

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'destroyed' due to food safety reasons at the request of e.g. the Federal Agency for the Safety of the Food
Chain). Processing is carried out in accordance with the VLAREMA and BAT composting/fermentation.
3 Optimise the valorisation of the various finished products . A differentiated range of finished products
can be commercialised with opportunities in different markets by combining different processing and
post-treatment techniques. These products can replace a group of primary raw materials. The sector is
also focusing on integral chain control and the quality assurance system in order to achieve optimum
valorisation and generate a wide variety of finished products (compost, digestate fractions).
4 Make the conversion of energy from food and biomass waste flows more efficient where possible . This
efficiency improvement also applies to the use of heat for materials handling and the actual conversion of
energy. Research and projects are aimed at finding the right mix of finished products (digestate, heat,
biogas, biomethane, electricity, CO 2, water, nutrients, carbon) to increase the profitability of
fermentation.
Industrial raw materials
Biomass (waste) flows are interesting for the biobased industry (as a source of sugars, proteins, fats and
fibres).

In specific niches of green chemistry, certain food/biomass (waste) flows form a sustainable and strategically
interesting replacement for fossil raw materials. Especially eligible for valorisation: food/biomass flows that
are homogeneous, of good quality, available in sufficient quantities, easy to collect and easy to store. More
and more companies are setting up partnerships: they exchange waste flows and put them to good use.

Soil – Increasing organic carbon
Closing the biological cycle is key to preserving and improving soil quality. In addition, organic matter plays a
crucial role in climate adaptation and mitigation: as a buffer against drought stress, for better infiltration, for
carbon storage in the soil, etc.

Soil improvers and fertilisers derived from biomass waste flows contribute to preserving the fertility and
production capacity of Flemish soils. In the coming years, steps will be taken to increase the organic content of
the soil to prevent soil compaction, soil sealing, desiccation and soil erosion, and to make the soil more
resilient and act as a carbon buffer against the effects of climate change. It is important that the fertility is
preserved in order to continue to provide food and raw materials for a bioeconomy. As such, the soil is an
essential component of the circular economy.

For soils with a lower organic matter content, a trade-off must be made: harvest the field residues and replace
them with sources that are richer in organic matter, more stable and more hygienic, or leave them in the field
and incorporate them to improve soil fertility. The second method helps to meet climate targets by preserving
organic matter in the cycle and storing carbon.

Nutrient recovery

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The Flemish Energy and Climate Plan 2021-2030 provides for an increase in the nitrogen efficiency of the
Flemish agricultural sector. But among other things, the ever-decreasing Flemish market for nutrients
continues to stimulate sales to nutrient removal. Livestock manure and digestate from manure (co-
)fermentation often go to manure processing installations for further treatment. In doing so, the nutrient cycle
is only partially closed. Fermentation installations are evolving towards the post-treatment of thin digestate
fraction by biological nitrogen removal. Both co-fermentation installations with manure and manure
processors have an important responsibility.

The transition in manure (co)processing 27 is regulated in MAP 6. This transition is being prepared by the
implementation of the update of the BAT Manure Treatment and the subsidising of NutriCycle Vlaanderen, a
platform that among other things, will draw up the Nutrient Recovery Action Plan (see MAP 6).

The processing of organic biological commercial waste (OCW) and manure in Flanders are closely related, also
for the marketing of finished products. The marketing of finished products is monitored by Vlaco and OVAM.
Effective coordination is important for the drafting and implementation of the nutrient recovery action plan by
the public administrations in the steering group of NutriCycle Vlaanderen (VLM, VMM, OVAM, etc.) with the
sector organisations and this action plan. The activities of Nutricycle Vlaanderen are also monitored by the
Flemish Interdepartmental Working Group on Bioeconomy.

For the development of a regulatory framework for on-farm composting, see 5.5.1.

Incineration ban
According to the VLAREMA, flows that are collected separately with a view to recycling fall under the
incineration ban. In Flanders, there is also an incineration ban on finished products from composting or
fermentation of organic biological waste and manure, as regulated in the VLAREMA.
4.6.2 Targets for 2025

Targets for the end of 2025
► Residual waste from businesses (hotels, restaurants, catering, hospitality, retail) to decrease by 20%
compared to 2019.
► Optimum valorisation of food waste flows; where this is not yet happening although it is possible and
legally permissible, the aim is to valorise them higher up the cascade 28 (higher cascade index compared
to 2015).

4.6.3 Action programmes
The following are the focus points for valorisation for the entire planning period (2021-2025):

27 VCM issued a vision paper on this transition in 20 17 with recommendations for policy.
28 Subject to what is logistically justifiable i n the case of small quantities or, for example, an exceptional food crisis situation.

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1. High-value reuse of unused agricultural and horticultural crop (waste) flows .
Research provides solutions for the prevention and valorisation of production surpluses. At the same time, it is
important to keep sufficient organic matter in the soil, for example by applying stabilised and sanitised soil
improvers.
2. Ensure maximum valorisation of food losses and waste flows from production, distribution, catering, etc.
3. Increase recycling rates 29 through composting/fermentation.
The following recycling rates in relation to the collected quantities have been set:
• For VFG waste: 85%;
• For household and commercial green waste: 85%;
• For organic biowaste: 85%.

This implies ongoing high-quality monitoring of input materials in all collection regions. The contamination rate
for VFG waste/OCW input materials and for green waste must not exceed 2% in terms of weight. Fine sieving is
required in order to remove this percentage of contamination (especially plastics), and this results in more
waste and consequently a lower recycling rate. The recycling rate for the fermentation mix is optimised as part
of action 1.9.2.

4. Continue and, where possible, optimise integral chain monitoring of the collection, processing and
marketing of biological (waste) flows.
When used in animal feeds, this is done via the Feed Chain Alliance, which is managed by OVOCOM, the
consultation platform for feed materials. For composting and fermentation, this is done through the General
Regulation on Certification.
5. Make maximum use of the existing processing infrastructure, knowledge and expertise in Flanders.
6. Contribute to renewable energy targets:
• By bringing continuity to the fermentation of wet biomass waste flows from businesses in Flanders;
• By equipping some composting installations for VFG waste in Flanders with a pre-fermentation system
with post-composting, see Flemish government coalition agreement 2019-2024.

7. Facilitate the valorisation of nutrients from residual flows (digestate fractions, etc.) and the marketing of
recovered nutrients and organic carbon.

29 Recycling rate means: tonnage actually recycled in relation to the tonnage collected separately. Tonn age actually recycled is the input flow that is wei ghed at
composting/fermentation installations minus the res idual waste flow that has to be incinerated either by pre-sorting, intermediate treatment or after sie ving due to non-
compliance with the VLAREMA (not suitable for use a s soil improver/fertiliser). The sieving overflow t hat goes to biomass incineration must also be deduc ted as non-recycled.
Intermediate treatment means: in the treatment proc ess, including tearing open bags in the case of VFG waste/green waste or unpacking packaged organic co mmercial
waste.

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8. Optimise the processes and marketing of various finished products from composting and fermentation
through product differentiation.
9. Develop an overall strategy for the optimal deployment of biogas and biomethane, analysing how it can be
injected into the natural gas network and used as transport fuel, in addition to the local valorisation of the
gas and its use as a chemical building block.
10. Enable the processing of organic biological waste and waste water into water of sufficient quality for use in
irrigation or fertigation.
The action programmes listed below (AP 1.9. - AP 1.11.) already set some milestones for achieving the targets.
Priority actions can be added annually according to changing needs.

AP 1.9. Increase the circularity and sustainability of the recycling market

This action plan consists of different actions to increase the circularity and sustainability of the recycling
market. The flows must be as pure as possible in order to produce output with higher added value.

Indicator AP 1.9: Implement actions through the execution of projects
The action programme focuses, among other things, on the following action themes:

ACTIONS

Action 1.9.1 Investigate the feasibility of recyclable/compostable alternatives in horticulture

The processing of greenhouse foliage (e.g. tomato foliage) is still a problem. The foliage cannot be composted
due to the numerous plastic clips it contains and must be incinerated. A study will be carried out to find
solutions for improving the quality of the waste flows in view of recycling tomatoes, peppers, cucumbers and
aubergines from greenhouse cultivation, in order to contribute to meeting the recycling target.
This action will be implemented as part of C-MART Life, project C-12.1.

Compostable alternatives are also in the pipeline for agricultural foils and flower pots. Further research is
needed to support these meaningful initiatives.

Initiator: Vlaco in cooperation with the partners
Partners: OVAM, Good Practice Centres for greenhouse cultivation, composters, horticultural sector, Belgian
Farmers' Union (Boerenbond),
horticultural cooperatives

Action 1.9.2. Optimise the collection, unpacking and composting/fermentation of packaged food waste

Food waste packaged in plastic, glass, etc. is currently unpacked for use in animal feed or fermentation.
Acceptance rules for animal feed are stricter than for fermentation. A further adjustment of the acceptance

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criteria and processing methodology for packaged foodstuffs meant for fermentation is a useful measure to
mitigate the spreading of possible plastic residues via digestate or compost. In 2021, research will be
performed into the maximum permissible contamination in the input flows meant for biological processing
(fermentation, composting) in relation to the rest of the processing process.
In order to further ensure and increase the acceptance by customers of the finished products of biological
processing (compost, digestate), OVAM is working with the Flemish compost organisation (Vlaco) and the
processors of organic biological waste to refine the new measuring methods (via surface measurement) and
monitor the input; they are also reviewing the standards for contamination and impurities (glass, metals,
stones and plastics) in finished products. As such, the standards of the European regulation for fertiliser
products will also be respected in the long term. In 2026, this regulation will be further tightened for plastics.
This also means stricter acceptance conditions to avoid impurities in the input flows as much as possible.
Unpacking methods can still be refined even further, but better separation at the source is also necessary. It is
important that packaged and unpackaged foodstuffs are collected separately at the source wherever possible.
A monitoring and quality assessment system is to be incorporated into the entire chain. This action will be
implemented as part of C-MART Life, project C-13.

Initiator: Vlaco in cooperation with OVAM
Partners: Retail, Comeos, Fevia, Denuo, collectors, unpackers, composters/fermenters Pack4food, Valipac

Action 1.9.3. Continue to innovate and conduct research into niche applications

The actions below, categorised into four domains, focus on the higher value valorisation of biomass.

a. Exchange organic biological waste flows for high-value (industrial) valorisation
This action focuses on matching supply and demand of organic biological waste flows in order to create
applications with higher added value. Supply and demand of these flows are typically located in sectors that do
not know each other sufficiently well and that did not cooperate previously. Facilitating the interaction
between these sectors enables higher value valorisation of these organic biological waste flows. The Symbiosis
platform is being further developed in this context.

Initiator: Flanders Biobased Valley
Partners: Innovatiesteunpunt, Belgian Farmers' Union (Boerenbond), Institute for Agricultural and Fisheries
Research (ILVO), Flanders’ Food, OVAM, Inagro

b. Optimal utilisation of food waste flows and food crop biomass for food
These research projects are investigating whether new technologies can lead to more high-value applications
of biomass. This concerns, for example, the extraction of dietary fibre from agricultural flows such as chicory
root, the extraction of natural antioxidants from fruit and vegetable flows or the extraction of natural dyes
from vegetable biomass.

Initiator: ILVO

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Partners: Boerenbond-Innovatiesteunpunt, Belgian Association of Horticultural Auctions, Flanders' Food, other
research institutions active in this field

c. Derive biopesticides and biostimulants from underutilised vegetable waste flows
With the tightening of legislation on the use of plant protection products, crop production urgently needs
natural, efficient biostimulants and biopesticides. The research projects Bio2bio and BioSUNmulant derive
active ingredients from vegetable biomass.

Initiator: Academic R&D&I partner such as UGent, KUL, etc.
Partners: Institute for Agricultural and Fisheries Research (ILVO), Inagro, other research institutions active in
this field

d. Bioconversion of underutilised heterogeneous food waste flows with insects
This research project focuses on the use of insects to convert heterogeneous biomass fractions into uniform
market-relevant products with high added value, such as protein, fat, chitin and organic fertiliser.

Initiator: R&D&I partner such as Inagro, Strategic platform for insects, etc.
Partners: Institute for Agricultural and Fisheries Research (ILVO), other research institutions active in this field

Action 1.9.4. Valorise the potential of biogas in Flanders

The further development of the potential of biogas as a circular valorisation method for organic biological
(waste) flows can contribute to the climate objectives. The current support framework for renewable energy
from fermentation does not seem to focus merely on expanding fermentation capacity but rather on
maintaining, replacing and fully utilising currently available capacity. The production of biogas and biomethane
can be expanded further in Flanders. The focus is currently on conversion into electricity, but other
valorisation options must also be developed. A clear vision and development strategy for biogas/biomethane,
in consultation with the relevant stakeholders and combined with proper support, must form the basis for
further expansion of production capacity.

Initiator: Biogas-E
Partners: Vlaco, fermentation companies, utilities, Green Gas Platform, Inagro, Bio-energy Platform

AP 1.10. Increase the added value of the market

The focus on quality and circularity (see AP 1.9) can stimulate the development of a differentiated market for
the finished products of biological processing. The goal here is for the market to trust these recycled products
to ensure sales.

Indicator AP 1.10: Amount of compost and digestate sold in the different market segments

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ACTIONS

Action 1.10.1. Promote the marketing of quality recycling products from composting and fermentation
through research, demo trials and demo days

The organic carbon content of agricultural soils must be increased, but not every product is equally suitable for
increasing the carbon content of soil. Moreover, the application of nitrogen and phosphorus is often limited by
the Flemish manure regulations. Additional incentives can be provided for the application of soil improvement
agents with a high ratio of effective organic substance (EOS)
30 /phosphorus, such as compost from VFG and
green compost, and digestate products with a favourable EOS/phosphorus ratio. For example, research into
the effectiveness and fertilising/soil improvement value, as well as demo trials and demo days, are intended to
promote the sale of high-quality recycling products in, for example, horticulture and garden services. Quality
control and guarantees are necessary in this respect.

Initiator: Vlaco in cooperation with composting and fermentation companies
Partners: Institute for Agricultural and Fisheries Research (ILVO), agricultural and horticultural sectors, potting
soil sector, VVOG, VVSG/Interval, municipalities/intermunicipal associations, Biogas-E, Inagro, etc.

Action 1.10.2. Expand the development and marketing of the product range

Product differentiation is important to be able to align the supply of renewable soil improvers, potting soil and
fertilisers to the demand, including for export. This requires support in developing and marketing an
innovative product range which is tailored to (potential) users.

Potting soil producers, the fertiliser industry, agriculture and horticulture, private individuals and landscapers
are important user groups. Potting soil producers are actively seeking a replacement for peat in potting soil
mixtures (see action 2.3.3).

Local authorities also play a key role: they can replace peat, they can include compost and digestate products
in landscaping or maintenance specifications for example. In addition to the differentiation in products, the
place where the compost is offered is also important. Local authorities can develop and promote a sales
channel through the recycling centres, and this has a positive effect on the CO
2 footprint. After all, recycling
centres are the ideal place to close the biological cycle. Private individuals bring green waste and can obtain
compost.

From 2021-2022 onwards, the aim is for private individuals to be able to buy a compost product in bags and/or
bulk from as many recycling centres as possible in Flanders.

Initiator: Vlaco

30 Effective organic substance (EOS) is the amount of organic substance remaining in the soil after one year.

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Partners: Composting and fermentation companies, municipalities/intermunicipal associations, VVSG-
Interafval, buyers, AVBS, test centres, Belgian Potting Soil Federation.

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5 BIOMASS (WASTE) FLOWS OF NATURE, FOREST AND
LANDSCAPE MANAGEMENT
5.1 APPROACH
A clearly defined strategy and approach are needed to make high-quality and sustainable use of biomass
(waste) flows that are released as a result of managing green areas (verges, parks, gardens, etc.), natural
areas, forests and landscapes. The strategy of this action plan does not aim to regulate the primary production
of biomass in these areas (e.g. wood production, managing grazing land in natural areas). However, the
intention is to use various measures to improve the management of waste flows and to better link the
potential of high-quality biomass to existing production systems in order to increase the supply of high-quality
applications. Selecting high-quality logs from wood hedges and linking this to the marketing of logs from forest
management is one example.

The strategy for the biomass (waste) cycle from nature, forest and landscape management is as follows:

• Prevention and re-use. Adapted management 31 and recycling techniques ensure that less green waste is
produced;
• Separate collection. Better cooperation between the different actors should optimise the mobilisation of
biomass waste flows;
• Valorisation. The supply of biomass waste flows must be clear and visible in order to ensure high-value
valorisation. Special attention is paid to small volumes of high-value biomass (waste) flows, which can be
given specific high-value applications. In order to increase the organic (carbon) content of the soil, clever
management of biomass waste flows is crucial.

Impact of the targets for expanding the Flemish woodland area and the development of the blue-green
veining.
The Government of Flanders' goal is to plant an additional 4,000 ha of forests by 2024. The objective is to plant
a net area 10,000 ha by 2030. This area will be achieved by expanding existing forest complexes but also by
planting smaller areas of forest in the vicinity of rural centres and suburban municipalities. This implies
management tailored to the scale of the forest and its function. In the long term (2050), biomass and biomass
waste flows will be released from this additional area. After analysing the data on diameter and volume
growth for trees (7-10 cm diameter) and after analysing the stock of young woodland, an average target value
of 30 m³ biomass/ha can be assumed by 2050 (Source: ANB). About 60% of this is stem wood, the rest is
branch wood and crown wood.

31 Where possible and desirable on the basis of the e cological objectives for an area.

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The development of a green-blue structure in Flanders will also generate biomass (waste) flows. However, it is
currently not possible to estimate the additional supply that will be released from these structures.
The figure below visualises the processing hierarchy for this cycle.
Figure 9: Cascade for the green, forest, nature and landscape management cycle

This figure only explains the ranking of the steps in the processing hierarchy for biomass waste flows and does
not draw conclusions about the ranking of energy applications, as this depends on the specific characteristics
of each technology and related energy applications.

PREVENT
adjusted management

RE -USE
circular gardening

FEED
animal feeds, insects or algae

MATERIALS
recovery of fibres and complex
molecules, soil improvers/fertilizers

MONO-INCINERATION WITH ENERGY
RECOVERY (e.g. Bio-CHP, biofuels, etc.)
INCINERATION AS RESIDUAL WASTE
INCINERATION WITHOUT ENERGY RECOVERY
LAND -FILL
or similar

Prevention/
Reuse
Energy
recovery/Removal
Recycling of
material

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5.2 TARGETS FOR 2025
Target s for the end of 2025
► Mobilise and valorise waste flows from nature, forest and landscape management in an optimal
way, respecting the main functions of each area and ensuring that biodiversity objectives and the
maintenance of the organic matter content/carbon stock in soils are respected 32 .
► In the period 2020-2025, at least eight research or pilot projects for specific waste flows in open
spaces were started. Furthermore, one experimental space to be set up that can produce fibre
samples for testing at potential customers.
► In 2025, at least one installation will be operational in Flanders that can process specific waste into
high-value raw materials 33 .
► In 2025, at least 30,000 tonnes of natural grass clippings (fresh material, wet weighted) will be
treated for use in material applications (in addition to composting).
► By 2022 at the latest, a digital platform will be operational that visualises the supply of Flemish
biomass waste flows from nature, forest and landscape management.

5.3 PREVENTION AND FEWER LOSSES
The increasing focus on strengthening and developing green spaces in towns and cities may lead to the
production of more green waste. Sustainable management of parks and gardens through streamlined
management and recycling techniques ensures the prevention of green waste and its local reuse . The
principles of circular gardening should also apply to the management of public green spaces, see action
programme 1.7. of this plan.

In accordance with the role of biomass in the Flemish Climate Strategy, the construction and management of
these green structures will encourage techniques and crops that increase climate resilience and carbon
storage and maintain them at a high level.

Consultations will be started as part of programme 1.7 with, among others, the Belgian Federation of Green
Suppliers (Federatie Groenvoorzieners vzw), the Association of Public Green Spaces (Vereniging Openbaar
Groen) and Vlaco vzw to develop prevention, climate adaptation and mitigation measures for park and garden
landscaping and maintenance.

32 See the no-debit rule in the Flemish Energy and Climate Plan 2021-2030, at least for the period until 2030.
33 For example, fibres for paper, cardboard or insula tion panels, juice fractions as biocide or (phyto)p harmaceutical agents,

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5.4 BETTER SORTING AND COLLECTION
5.4.1 Strategy
In 2017, the Flemish Land Agency (VLM) published a recommendation on harvestable landscapes by the
Intergovernmental Rural Consultation Group. This sets out the vision for the management and valorisation of
biomass from nature, forest and landscape management. It formulates the following recommendations:

− Strive for long-term, locally or regionally 34 oriented commitments between biomass land managers
and consumers. This provides a stable investment climate;
− Encouraging cooperation between land managers makes management more efficient and ensures a
supply of larger and more stable biomass flows. This is achieved for example by integrating and
digitising uniform management plans, by monitoring and independently coordinating management
activities. The effectiveness of ecosystems serves as a framework for organising management;
− The government actively supports new forms of cooperation, adapted management and innovative
marketing of biomass. This can be in the form of project subsidies or investment support but also
through a proactive attitude at all levels of government and policy areas;
− When planning and (re)designing the open space, include options for increasing the harvestability of
biomass. Landscape elements (realisation, management) must be integrated in a smart way especially
when designing for the purpose of erosion control, water storage, climate adaptation and mitigation,
and renewable energy production.

Based on these recommendations, the strategy for mobilising this cycle follows below.

Managing the open space must serve the diverse functions it has been given. For example, climate adapting
and mitigating, ecological, economic, recreational and cultural-historical aspects are important. The challenge
consists of reconciling these aspects and subsequently to achieve optimal management of these areas and of
the biomass (waste) flows that they produce. The starting point is to respect the no debit rule for the LULUCF
sector
35 . The legislation should encourage specific forms of management that result in integrated management
as much as possible.

Encouraging integrated management planning has already resulted in greater cooperation between land
managers. In addition to this management planning, there is also a need for consultation between the actors
involved in managing these areas. The Flemish Land Agency and the Agency for Nature and Forest established
the Harvestable Landscapes platform as a learning and inspiring network of and for actors working on woody
and grassy biomass from the landscape. They include site managers, contractors, producers and processors,
policy makers, researchers, municipalities and intermunicipal associations. This was one of the concrete
recommendations of the 2017 Intergovernmental Rural Consultation (IPO opinion) on Harvestable Landscapes.

34 'local' in this context means: within a radius of several tens of kilometres around the biomass origin; 'regional' means: within a radius of several hun dreds of kilometres
around the biomass origin.
35 The sector must not be a net producer of CO 2. See Flemish Energy and Climate Plan 2021-2030, ch apter 1.1.3. (LULUCF: Land Use, Land Use Change and Forestry).

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In general, they want to initiate and stimulate the local valorisation of biomass from landscape management in
Flanders by responding to opportunities and developments and by eliminating bottlenecks.

Five major process steps are closely linked in the management of these biomass waste flows:

Figure 10: The five process steps for managing waste flows from landscape management.

For this action plan, the first step – landscape design and organisation – is not considered because the current
landscape is the starting point and because this matter also exceeds the scope of this action plan.

Biomass chains often get stuck in the harvesting and logistics phase. The mobilisation of released biomass
flows therefore deserves further attention. Mobilising biomass waste flows also benefits the efficient
management of raw materials. Many projects in Flanders focus on the generation of biomass (waste) flows for
renewable energy production, but the results of these projects can often also serve to mobilise released
biomass (waste) flows for materials recycling (e.g. board production, composting, paper production, etc.).

Besides mobilising the biomass, there is also a need for cooperation. The Harvestable Landscapes platform
plays a central role in sharing knowledge and coordinating policy. Chain coordinators in the field can be
neutral and intermediate regional workers who take on the following tasks:
− promote local and regional cooperation (intergovernmental, cross-policy area, local actors) in
landscape management;
− promote local and regional markets and the use of biomass.

A first important step is the development of the Rural Maintenance Office (RMO) as a coordinating office for
the management of landscape elements in a defined region. In addition, the various land managers should
cooperate as much as possible in the field in terms of joint management of infrastructure, materials and
collection of biomass waste flows (the concept of biomass hubs ), in order to achieve sufficient scale and
efficiency gains. The construction and installation of biomass hubs is encouraged in specific pilot projects. The
nature of the biomass and/or the terrain requires a tailor-made installation for managing, harvesting,
transport and storage. The pilot projects take into account the specific situation of the areas. They are mainly
aimed at making the potential of the biomass more exploitable and available. The location and operation are

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coordinated with other biomass hubs in the region as part of a network. Digital tools are available for this
purpose (Symbiosis Platform and MooV tool from VITO). The combination of increased mobilisation,
cooperation and the development of biomass hubs for joint management automatically leads to a higher
potential for high-value valorisation of biomass waste flows.

The draft strategy for a Flemish Common Agricultural Policy 2021-2027
36 can also support a better
management of biomass waste flows. Line 5 (Intensify climate-smart sustainable agriculture and horticulture)
and Line 6 (Attention and care for natural resources, biodiversity and landscapes) are in this respect relevant
for managing open space biomass.

The possible support measures in the June 2018 draft CAP regulation provide guidance for, among other
things, increased renewable energy production and improved soil quality. These support measures can also
help optimise the management and valorisation of management waste through incentive policies.

5.4.2 Targets for 2025
Targets for the end of 2025
► Mobilise and valorise waste flows from nature, forest and landscape management in an optimal
way, respecting the main functions of each area and ensuring that biodiversity objectives and the
maintenance of the organic matter content/carbon stock in soils are respected 37 .
► In the period 2020-2025, at least eight research or pilot projects for specific waste flows in open spaces
were started. Furthermore, one experimental space to be set up that can produce fibre samples for
testing at potential customers.

5.4.3 Action programmes
AP 2.1. Managing the chain at the regional level

The knowledge that local actors have developed over the past years in the individual or linked steps is a good
starting point for this new action plan. It clearly indicates that the integral approach of the chain as a whole is
necessary to make further progress in the cycle of biomass flows from green, forest, nature and landscape
management.

Flanders has a highly fragmented landscape, a dispersed ownership situation and various rules and
regulations. Efficient organisation of management and harvesting is therefore the big challenge when it comes
to production. Transport, collection and storage are important components in terms of logistics. Biomass hubs
are difficult to start up and also need digital support. This can increase the awareness of the qualitative and
quantitative availability of biomass, create incentives for potential customers (from processors to intermediate

36 Version of 2 May 2019, Department of Agriculture a nd Fisheries.
37 See the no-debit rule in the Flemish Energy and Climate Plan 2021-2030, at least for the period until 2030.

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or finished products), and provide basic information to prepare business models. For this last aspect, concrete
implementation on a business scale of research into innovative applications remains important, taking into
account economic realities. In the past, many projects in Flanders focused on generating biomass (waste)
flows for renewable energy production. Today, the focus is on more high-value applications and materials
recycling (e.g. board production, composting, paper production, etc.). This goes hand in hand with an integral
approach to biomass (waste) flows , and therefore focuses not only on woody but also on non-woody flows.

Finally, the projects of the past planning period show that a bottom-up approach at regional level pays off :
this approach starts from the current supply of biomass and its application potential at a regional level.

ACTIONS

2.1.1. Collect specific flows with a higher added value separately

There is a market for large volumes of waste flows to traditional processing methods. In addition, it is also
possible to upgrade smaller volumes of specific waste flows so that they can be used in niche applications with
higher added value. Research and pilot projects can further explore the potential of these specific waste flows.

Initiator: Research institutions
Partners: AWV, Agency for Nature and Forests (ANB)/Natuurinvest, Flemish Waterways plc, Natuurpunt,
Association of Flemish Cities and Municipalities, Pro Natura

Indicator: Number of research or pilot projects on specific waste flows from open space that were started
during the planning period.

2.1.2. Charting potential waste flows streams of invasive species
A kind of sample card should make it clearer which biomass waste streams are available in Flanders. In the first
place, this concerns 'new' flows for which there are no applications in Flanders yet. In this context, specific
attention should be paid to flows of invasive species such as the large water pennywort and the water
primrose. Interested parties can then use this information about potential raw materials for further
processing.

Initiator: ProNatura
Partners: VITO, Agency for Nature and Forests (ANB), VMM, OVAM

Indicator: Number of sample cards prepared with invasive species, in view of their potential for materials
recycling.

AP 2.2. Cooperation for the management of landscape elements

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Where possible, land managers in a region cooperate closely with regard to management, storage and
selection in order to achieve high-quality valorisation of waste flows.
The cooperation model and the pooling of management should allow increasing efficiency and generating
economies of scale for the production step (management and harvesting), storage and selection, as well as for
valorisation/processing. In order to ensure the efficient use of resources, the overlapping of several RMOs
(Rural Maintenance Office) is not permitted.
Cooperation with a LOB is an option for land managers and not an obligation. This makes it possible to choose
the best possible solution according to local conditions.
The sustainable management of small landscape elements (SLE) is often a combination of different actors and
various legislative provisions. That is why it is important for SLEs to organise the management in a pragmatic
way, without too much administrative burden. For this reason, Regional Landscapes is working on an adapted
framework for the management of SLEs .

ACTIONS

2.2.1. Ensure the structural operation of the Rural Maintenance Office (RMO)

The basic functioning of the RMO per region is guaranteed by the development of a (partially) structured
financing to stimulate and efficiently organise the management and harvesting of biomass. An RMO is a
territorial office (supra-municipal address or hub) that organises regular landscape maintenance on an area-
wide basis within its area of operation.
The Flemish Land Agency (VLM) and the Agency for Nature and Forests (ANB) are pulling this project together
because the RMOs are mentioned in the cooperation agreement between ANB-VLM and the provinces,
concerning the functioning of the regional landscapes.
Initiator: VLM, ANB
Partners: Regional Landscapes, VVSG, VVP, Profisi (DIPLA), Boerennatuur Vlaanderen

Indicator: Number of RMOs using structural support for their basic operation.

2.2.2. Legal solution for an adapted vision development and management tool for hedges and hedgerows
(SLEs)

A new management tool or an adaptation of an existing management tool for SLE combines the landscape
level vision and management planning. Vision development and management planning must ensure that both
regular management and the conversion management of hedgerows have been assessed against ecological,

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economic and social criteria, with a view to possibly obtaining an end-of-waste status for the biomass
produced.

Initiator: Regionaal Landschap Kleine en Grote Nete vzw
Partners: Association of Flemish Provinces (VVP), Research Institute for Nature and Forest (INBO), Belgian
Farmers' Union, Boerennatuur Vlaanderen, Natuurpunt

Indicator: An adapted management tool for SLEs has been developed.

5.5 HIGHER VALUE VALORISATION
5.5.1 Strategy

Currently, nature, forest and landscape management is mainly aimed at realising or maintaining the
ecosystem functions and landscape qualities of these areas. The carbon storage ecosystem service is gaining
importance as a result of the climate policy. Nevertheless, management still produces a lot of biomass that is
only partially valorised. The Environment and Spatial Development 2019-2024 policy memorandum recognises
this problem. The goal is to stimulate research into innovative and sustainable applications of natural products
from forest, nature and landscape management waste flow. It also focuses on optimising the chain of these
flows through regional and local valorisation. But existing biomass flows can also be utilised with a higher
value, resulting in a higher economic return. By making more and better use of the derived raw materials and
products, efforts to manage and improve the quality of open space can go hand in hand with higher
economic appreciation. This also provides opportunities for the economy and local employment. To
summarise, it results in a higher appreciation of the landscape quality of the open space and economic return
through the high-value utilisation of the released biomass flows.

The mobilisation of the biomass and biomass waste flows from this cycle aims to close the materials cycle at
the highest possible quality level. The strategy is therefore based on the processing hierarchy as shown in
Figure 9.

Various policy plans and targets affect the practical implementation of the processing hierarchy for these
biomass (waste) flows. This policy context is discussed in detail in Annex 9.8.

The policy plans broadly confirm the processing hierarchy. Especially the importance that the Flemish Energy
and Climate Plan 2021-2030 attaches to carbon accumulation and capture endorses the ranking for
applications of biomass (waste) flows.

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5.5.2 Implementation of the strategy
The strategy (5.5.1) is the foundation for the concrete application of the materials hierarchy. Each step in the
hierarchy is linked to preconditions to guarantee the sustainable application of the biomass (waste) flows. A
clarification is given below.

1. Recycling of material
a. General

Materials recycling aims to apply biomass (waste) flows in such a way that their carbon storage
function is retained for as long as possible, either as soil carbon or as a materials application. Both the
biological cycle and the technical cycle
38 can perform this carbon storage function.

b. Recovery or conversion into components 39

Specific sub-flows can offer added value outside the biological cycle. The Public Waste Agency of
Flanders (OVAM) evaluates the advantages and disadvantages of these innovative applications in
terms of environmental impact, added economic and social value, and environmental impact during
their life cycle (the latter in accordance with the provisions of Article 4 §3 of the Materials Decree).
Where added value exists, the legislative framework of raw materials declarations facilitates
sustainable materials applications.
To demonstrate the potential added value of new materials applications, projects must be given
sufficient scope to experiment. For example, the Moonshot programme coordinated by Catalisti
includes a 'bio-based chemistry' research project that focuses on the valorisation of lignin and
lignocellulose for the production of chemical components.

c. Recovery as soil improver or fertiliser

The most appropriate technique for transforming biomass waste flows into soil improvers or fertilisers
is composting . Fermentation is an alternative option, provided that the process steps guarantee the
elimination of weed seeds and plant pathogens through post-composting. The hygiene requirements
for green and VFG composting as stated in the General Regulation on Certification apply here.
Direct use as a soil improver is only allowed if the combination of the intrinsic properties of the
biomass waste flow (stability, C/N ratio, absence of plant pathogens and weed seeds, etc.) and its
method of application guarantee that the use does not have negative effects on the environment. In
addition, an effective contribution to improving soil quality (carbon build-up, disease resistance, water
retention, humus build-up, etc.) must also exist.

38 For example, use biomass waste flows as raw materi al for bio-based products (plastics, chemicals).
39 Fibres, proteins, building blocks for chemical con version.

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The use of prunings as ground cover (to keep out weeds and prevent desiccation) is only permitted if
the quality of the biomass waste stream meets the following conditions:

a. Only healthy and clean prunings may be shredded. Fine green waste (grass, leaves, hedge
clippings, conifer clippings) is not allowed; this condition does not apply when private individuals
shred their own pruning waste for use in their own garden;
b. The use of mulch material made from wood waste (construction and demolition wood, pallets,
etc.) is prohibited;
c. The coarseness of the mulch material must be between 10 and 90 mm for 90% of the material;
d. The mulch material must be free of odour and contaminants;
e. The storage of shredded prunings is limited to 2 months after shredding.

2.
Energy valorisation:

a. Conversion into biofuels

The planned increase in the share of advanced biofuels may create demand for biomass waste
flows. Significant local demand for biomass waste flows for applications as materials or soil
improvers or direct energy application with high energy efficiency (see b.) is already a probability.
As such, this application may put additional pressure on the scarce supply. An assessment
framework for this application can help make an objective assessment of the ecological, economic
and social effects of such initiatives. The Public Waste Agency of Flanders (OVAM) is working on
this assessment framework in consultation with the stakeholders involved.

However, fermentation processes can convert biogas into biofuel because the fermentation
technology creates a synergy between materials production and renewable energy production.

b. Incineration with energy recovery

Following the policies outlined in the Flemish Energy and Climate Plan 2021-2030, biomass (waste)
flows are partly shifting to medium-sized combustion installations (1 MWth) in industry,
agriculture, the tertiary sector and local heat networks for public and private buildings. Regular
evaluations of the call for green heat and residual heat monitor the situation in the real world.
In addition, biomass (waste) flows in new
40 installations can only be used for green electricity
production if this is done in a high-quality cogeneration (combined heat and power – CHP)
installation .

40 Article 6.2.1.1, third paragraph of the Energy Dec ree.

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The sustainability criteria in the renewable energy legislation 41 guarantee that the biomass
(waste) flows come from sustainably managed sources. In addition, the combustion ban 42 ensures
that recyclable biomass waste flows are only used for energy production in specific cases.

This means that, at the level of green, VFG or OCW composting, the need for structural materials
is determined on the basis of optimum processing. Excess structural materials
43 can be disposed
of via renewable energy production.

Sieving overflow from composting can also be used for renewable energy production.
Environmental charges regulate the purity of sieving overflow from composting processes
44 . To
be eligible for exemptions, the sieving overflow must comply with the following requirements:
o The sieving overflow is produced by a licensed composting installation that is subject to
quality control in accordance with the General Regulation on Certification and has an
inspection certificate for compost;
o The sieving overflow is the result of screening the compost with a sieve with a minimum
mesh size of 16 mm;
o The sieving overflow may contain a maximum of 3% by weight of impurities (i.e. non-woody,
non-inert components);
o A VLAREL-approved sample taker and an approved laboratory must check the contamination
in the sieve overflow every six months (in the summer and winter).

3. Incineration without energy recovery and landfill

Incineration of biomass waste flows without energy recovery is prohibited, except in the situations
mentioned in Article 6.11.1. of Vlarem II.

According to the applicable landfill prohibitions of Article 4.5.1, the dumping of combustible and/or recyclable
biomass waste flows is prohibited. This includes the burying of biomass waste flows in soil without a valid raw
materials declaration.

41 Ministerial Decree on the demonstration of biomass characteristics (BOG 12 July 2019).
42 Article 4.5.2 of the VLAREMA.
43 Woody material separated before composting (this r equires a derogation from the combustion ban), or s ieving overflow separated during or after the compo sting process,
produced by a licensed green or VFG or OCW composti ng facility with quality control, which has an insp ection certificate for the compost.
44 Sieving residues from the complete or partial comp osting process of green, VFG or OCW.

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5.5.3 Targets for 2025

Targets for the end of 2025
► Mobilise and valorise waste flows from nature, forest and landscape management in an optimal
way, respecting the main functions of each area and ensuring that biodiversity objectives and the
maintenance of the organic matter content/carbon stock in soils are respected 45 .
► In 2025, at least one installation will be operational in Flanders that can process specific waste into
high-value raw materials.
► In 2025, at least 30,000 tonnes of natural grass clippings (fresh material, wet weighted) will be
treated for use in material applications (in addition to composting).
► By 2022 at the latest, a digital platform will be operational that visualises the supply of Flemish
biomass waste flows from nature, forest and landscape management.

5.5.4 Actions

Action 2.3.1. Make the supply of biomass waste flows more visible

There is a clear need for a platform where land managers can offer their supply of waste flows to potential
users. Action 12.4 of the current action plan continues but has been reoriented towards a matchmaking
platform. The possibility of joining the Symbiosis platform is being investigated in this respect. To realise this
matching, the land managers must provide detailed information (quantity, nature and quality of the waste
flow, period of supply). Structural cooperation with buyers of waste flows through cooperation agreements
between all parties involved is being sought actively. We are also trying to integrate the database of niche
wood products into the Symbiosis platform.

Initiator: OVAM/Symbioseteam
Partners: VEKA (for green heat targets), Flemish Institute for Technological Research (VITO), Profisi, AWV,
Flemish Waterways plc, Natuurpunt, Agency for Nature and Forests (ANB), Boerennatuur Vlaanderen, ABS,
Regionale Landschappen, Belgian Wood Confederation, bio-energy platform, etc.

Indicators:
− Number of land managers active as users of the Symbiosis platform;
− Number of offers for biomass waste flows from open space management on the Symbiosis platform;
− Volume of offered biomass waste flows from open space management on the Symbiosis platform;
− Number of matches between supply and demand realised through the Symbiosis platform.

45 See the no-debit rule in the Flemish Energy and Climate Plan 2021-2030, at least for the period until 2030.

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Action 2.3.2. High-value valorisation of high-quality timber

Synergies must be created for high-quality wood between different land managers with a view to high-value
valorisation on site or in the local wood-processing industry. Firewood is given a new purpose as material in
the local wood processing industry. Sustainable products are also developed for nature management on the
basis of locally produced wood.

Find synergies for valorising high-quality wood from forests on the one hand and small landscape elements
on the other hand

Initiator: Agency for Nature and Forests (ANB)/Natuurinvest, Boerennatuur Vlaanderen
Partners: Regionale Landschappen, local authorities, Natuurpunt

Indicator: Volume of timber from management of SLEs marketed via the (developing) timber market
(ANB/Natureinvest) for quality timber from forests.

Upgrade high-quality logs from the firewood circuit

Initiator: Belgian Wood Confederation
Partners: Agency for Nature and Forests (ANB), Natuurpunt

Indicator:
Number of forest owners who were informed about the possibilities of upgrading firewood for material
applications.

Develop new products from untreated locally produced wood

Initiator: ANB
Partners: Natuurpunt, etc.

Indicator:
− Increase in local material applications of waste flows from nature management measures.
− Number of awareness-raising actions to promote the use of locally produced wood as a sustainable
alternative to plastic products or imported wood products.

Action 2.3.3. Make cultivation substrates for the hobby and professional sectors more sustainable

Cultivation substrates consist of various materials which are not always sustainable or renewable. There is
potential in replacing peat, mineral wool and coconut products with locally available materials. The intention is
to conclude an agreement with the stakeholders involved to use waste flows in sustainable substrate
production.

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This action will be implemented as part of C-MART Life, project C-12.2.

Initiator: OVAM
Partners: Belgian Potting Soil Federation, Institute for Agricultural and Fisheries Research (ILVO), Flemish
compost organisation (Vlaco), Agency for Nature and Forests (ANB)/Natuurinvest, Natuurpunt, Flemish Land
Agency (VLM), Boerenbond, AVBS, PCS

Indicators:
− A cooperation agreement was concluded in 2021
− Increased use of alternative raw materials from local waste flows in the production of cultivation
substrates .

Action 2.3.4. Further focus on knowledge sharing and valorisation projects

Knowledge-sharing platforms, such as the Harvestable Landscapes theme group and Ecopedia, remain
important for this cycle. They receive support to improve operations and communications is this respect will
be more active. The focus of research is now more on larger flows and applications.

Initiator: Agency for Nature and Forests (ANB)/Natuurinvest
Partners: Research institutions, project initiators

Indicators:
− Number of organised events on valorising biomass from the open space.
− Number of registered users of Ecopedia.
− Number of reports on valorisation of waste flows made available on the Ecopedia website (Green
Economy sub-theme).

Action 2.3.5. Clarify the regulating framework

By including cuttings and chopper materials in Annex 2.2. of Vlarema, these waste flows can be marketed as a
soil improvement agent (directly or as a cultivation substrate) without an application for a raw material
declaration, resulting in an administrative simplification (sub-action 2.3.5a). A regulatory framework is in place
for the use of woody biomass as a soil improver, to prevent and limit undesirable effects in this application
(sub-action 2.3.5b).

Initiator: OVAM
Partners for waste flows from heathland restoration and maintenance (sub-action 2.3.5a): Institute for
Agricultural and Fisheries Research (ILVO), Flemish Land Agency (VLM), Agency for Nature and Forests
(ANB)/Natuurinvest

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Partners for woody biomass as soil improver (sub-action 2.3.5b): Bodemkundige Dienst, Flemish compost
organisation (Vlaco), Institute for Agricultural and Fisheries Research (ILVO), Belgian Farmers' Union, ABS,
Boerennatuur Vlaanderen, AVBS, Natuurpunt, Flemish Land Agency (VLM)

Indicator:
− Annex 2.2. has been supplemented with specific nature management waste flows that can be used as
soil improvers.

Action 2.3.6. Encourage high-value use of biomass waste flows via assessment criteria in specifications

We try to include specific criteria in the standard specifications of the Flemish public administration. These
criteria encourage the environmentally responsible marketing of biomass waste flows resulting from the
performance of public contracts.

Initiator: AWV
Partners: Public Waste Agency of Flanders (OVAM), Agency for Nature and Forests (ANB)/Natuurinvest,
Flemish Waterways plc

Action 2.3.7. Prevent illegal use of green waste

Due to more lenient biomass policies in neighbouring countries, flows may leak into unsustainable processing
of green waste. A stricter enforcement policy must prevent these leakage flows as much as possible. Specific
attention is paid to the woody fraction of green waste and verge and natural grass clippings.

Initiator: OVAM
Partners: Enforcement Division of the Department of Environment and Spatial Development, local supervisors
(via Association of Flemish Cities and Municipalities (VVSG)), Denuo, Belgian Federation of Green Service
Providers, Belgian Farmers' Union, ABS, composting sector, AVBS and Groen Groeien

Indicators:
− Number of awareness-raising actions.
− Number of findings of illegal green waste processing.
Indicators:
− Implementation of a test case with specifications for the implementation of management works
(hedgerows, verges, etc.) where biomass waste flows are generated.
− A final report that shows the possibilities and limitations of sustainability criteria in (standard)
specifications.

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− Trend of the number of findings of illegal green waste processing

Action 2.3.8. Elaborate a balanced applicable legal framework for farm composting with 'sustainable and
safe flows'

Good practices are elaborated and disseminated through demo projects. The results of the projects can
provide important input for the development of an optimal legal framework for on-farm composting in
Flanders.
This action will be implemented as part of C-MART Life, project C-12.3.

Initiator: OVAM in cooperation with the Department of Agriculture and Fisheries
Partners: Institute for Agricultural and Fisheries Research (ILVO), Flemish Land Agency (VLM), Belgian Farmers'
Union, ABS, VCM, Vlaco, Agency for Nature and Forests (ANB), Natuurpunt, Regionale Landschappen, AVBS

Indicators:
− Regulatory framework for on-farm composting and marketing of finished products
− Support measures provided for on-farm composting

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6 WOOD (WASTE) FLOWS FROM INDUSTRY AND HOUSEHOLDS
6.1 APPROACH
Wood is a limited resource. It is therefore important that it remains in the biomass cycle for as long as possible
and retains its value. According to the principle of the value preservation cascade, the strategy for high-value
utilisation of biomass (waste) flows consists of more prevention, more separate collection and more high-
value valorisation. For the wood (waste) flows cycle from industry and households this means:

• Prevention and re-use. Ecodesign, upcycling, repair and reuse are a priority. They are crucial in preventing
wood products from being discarded;
• Separate collection. After separate collection or post-sorting, household and commercial wood waste is
reused as a material or energy source;
• Valorisation. The valorisation step for wood waste is in recycling and innovative material applications.
Energy applications are the very last option and are a final solution for non-recyclable wood waste flows.
The following figure shows the processing hierarchy for this cycle.

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Figure 11: Cascade for the wood (waste) flows cycle from industry and households

This figure only explains the ranking of the steps in the processing hierarchy for biomass waste flows and does
not draw conclusions about the ranking of energy applications, as this depends on the specific characteristics
of each technology and related energy applications.
The strategy for each of the three pillars is discussed below. Actions have only been formulated for the
separate collection and valorisation pillar.

PREVENT
Ecodesign

RE -USE
Second-hand circuits,
repairs
MATERIALS
recovery of fibres and complex molecules,
soil improvers/fertilizers
MONO-INCINERATION WITH ENERGY
RECOVERY (e.g. Bio-CHP, biofuels, etc.
INCINERATION
as residual waste(1)

INCINERATION
without energy recovery

LAND -FILL
or similar

Prevention/
Reuse
Recycling of
material
Energy
recovery/Removal

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6.2 TARGETS FOR 2025 AND 2030
Targets for the end of 2025
► Flemish post-consumer wood waste is no longer to be sold for energy applications without prior (source)
sorting 46 .
► Chipboards produced in Flanders consist of at least 85% recycled post-consumer wood waste; an
increase of 15% compared to 2020.
Targets for the end of 2030
► Contribution to European target: 50% of the recyclable portion of household and commercial waste to be
recycled additionally.

6.3 MORE PREVENTION, LESS LOSS
6.3.1 Strategy
Based on the premise that wood is a limited resource and the long-term storage of carbon should be
maintained as much as possible, this strategy focuses on measures for the ecodesign and reuse of wooden
products .

Ecodesign
For measures concerning ecodesign, we refer to the current initiatives and projects of Vlaanderen Circulair, its
partners and OVAM in the table below.

Instrument Description
Ecolizer Ecodesign design tool aimed at product designers
SIS Tool kit Design tool to integrate sustainability principles in innovation and design processes.
Circular design guide Guide by IDEO and Ellen McArt hur Foundation focusing on value creation and
sustainable business models
The Circulator Guidance for the development of circular strategies

Re-use
In terms of re-use, the recognised recycling centres (mostly recycling shops) in Flanders play a major role in
extending the life span of furniture. Approximately 28% by weight (approx. 23,000 tonnes)
47 of the goods
collected from second-hand shops consist of furniture, a significant proportion of which is wooden furniture.
About 41 percent of the collected furniture is resold after quality control. Recycling shops are only one

46 This ambition is greater than in the Biomass (waste ) Flows Action Plan 2015-2020, where this target wa s set for 2030.
47 Report Household Waste 2018 (OVAM)

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segment of the re-use landscape. The study conducted by HIVA in 2020 will provide more complete
information on reuse in Flanders. The results are expected by the end of 2020 and may form the basis for
discussions with the furniture sector on measures to further promote reuse.

In addition, upcycling increases the re-use volume by incorporating furniture parts in new furniture or other
interior applications. Profit, non-profit and social economy companies all work with wood from waste flows
and discarded furniture to design new products and interior concepts. They offer tailor-made solutions for
citizens and businesses.

Local authorities and civil society organisations also facilitate and organise training and networking
opportunities to share knowledge and learn skills on design, restoration and DIY with various materials,
including wood.

Furniture still makes up the largest part of the bulky waste fraction. Actions 43 and 44 of the Implementation
Plan for Household and Similar Commercial Waste focus on further reducing this waste from the bulky waste
fraction. By the end of 2021, the results of the bulky waste analysis will provide information on the possibilities
of setting up economic models for improved ecodesign, repair and reuse and upcycling of furniture .

The Flemish public administration is also committed to reusing furniture through sustainable public
procurement . The Flemish Agency for Facility Operations recently concluded two framework contracts so
that entities of the Flemish public administration and local authorities can easily purchase refurbished office
furniture
48 .

6.4 BETTER SORTING AND COLLECTION
The assumptions for the separate collection of wood waste are:
− the targets for materials recycling of wood waste into board material, i.e. by 2025, at least 85% of the
chipboard produced in Flanders will consist of recycled post-consumer wood waste;
− the recycling targets for wood packaging laid down in Directive 94/62 on packaging and packaging
waste, as amended by Directive 2018/852, and the recycling targets for wood packaging laid down in
the Interregional Cooperation Agreement (ICA);
− the share of wood waste in the climate and renewable energy targets as laid down in the Flemish
Energy and Climate Plan 2021-2030 and the share the ETS sectors in the climate targets.

48 https://overheid.vlaanderen.be/nieuws/de-vlaamse-ov erheid-kiest-ook-voor-circulair-kantoormeubilair

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6.4.1 Strategy
On the basis of the forecasts for the use of wood waste, Flanders is heading for a shortage of wood waste after
2020 of about 1 million tonnes per year (see Annex 9.9.). Moreover, it is not yet clear what the effects of a
tighter ETS 49 market (carbon price increase) will be on the demand for alternative fuels in the ETS sectors.
The resulting price effects may have a negative impact on the materials recycling of wood waste. The following
strategic lines are being developed to minimise this imbalance:

1. Better sorting of wood waste from household and commercial residual waste.
• A higher demand for wood waste will encourage sorting. An important precondition for this is, among
other things, a sufficiently high price delta with commercial residual waste to promote better separate
collection and sorting of wood waste;
• When collecting wood waste at recycling centres, pricing must prevent citizens from valorising their
wood waste themselves as firewood. After all, the combustion of treated wood contributes
significantly to the production of fine particles, dioxins and benzo(a)pyrene in Flanders
50 . In a demand-
driven market, a zero rate for wood waste at recycling centres is a realistic option that should be
further investigated.
2. If it was not collected separately for materials recycling (= sorting at source), untreated wood waste and
the material recyclable portion of (un)contaminated treated wood waste must be post-sorted in order to
market it as a high-quality recyclable sub-flow.

3. A shortage of wood waste in Flanders must be supplemented by importing wood waste from neighbouring
countries and regions.

To ensure a wood flow is considered for use in industry, the supply of raw materials must always be
sufficiently large, with guaranteed quality and purity.

6.4.2 Targets for 2025
Targets for the end of 2025
► Flemish post-consumer wood waste is no longer to be sold for energy applications without prior (source)
sorting 51 .

49 Emission Trading System
50 In Flanders in 2016, approximately 30% of fine par ticles and dioxins and more than 50% of benzo(a)pyr ene came from domestic wood heating. (Source: Annual Reports on
Air, Flanders Environment Agency - VMM).
51 This ambition is greater than in the Biomass (waste ) Flows Action Plan 2015-2020, where this target wa s set for 2030.

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6.4.3 Action programme
AP 3.1. Improve separate collection and sorting of wood waste

In the short term, the most important roadmap for material recycling remains the mechanical recycling of
wood fibres in board material or similar applications. The actions in this action programme therefore focus on
these marketing channels. New innovative recycling techniques are emerging and will eventually claim their
place in the recycling landscape. For this reason, the deliverables of these actions will be evaluated at regular
intervals (every two years) on the basis of the market prospects for these innovative recycling techniques.

ACTIONS

3.1.1. Guarantee the supply of recyclable wood waste

The increasing ambitions concerning climate and renewable energy production in Flanders and its
neighbouring countries entail the risk that recyclable wood waste will be used directly for energy purposes. By
analogy with the sorting requirements for mixed commercial waste, OVAM is developing a regulation for
minimum requirements, in cooperation with stakeholders, for the sorting (at source) of post-consumer wood
waste. The starting points for this regulation are:
a Freedom of choice for sorting at source or post-sorting (of different types of wood waste) for the
producers of wood waste;
b Minimum effort requirement for post-sorting;
c Freedom of choice for the disposal of post-sorted wood waste.

The implementation of the sorting requirements for wood waste must be given careful consideration. The
supply/demand balance and the economic context in which the various actors in the chain operate must be
taken into account.

Initiator: OVAM
Partners: Denuo, Interafval, Federation of the textile, woodworking and furniture industries (Fedustria), Bio-
Energy Platform, VEKA, Environment Dept. (enforcement division)
Indicator: A set of conditions will be available for wood waste processors in 2022.

3.1.2. Evaluate the classification of wood waste in terms of recyclability

The feasibility of developing a specific classification for wood waste will be investigated based on the results of
the Opt-I-Sort and Overschot (surplus) projects. This classification takes into account current and future
recycling possibilities, as well as specific restrictions as mentioned, among others, in REACH and POPs
Regulation.

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Initiator: OVAM/Unilin
Partners: Bio-Energy Platform, VMM, AGOP, Denuo, Interafval, Federation of the textile, woodworking and
furniture industries (Fedustria)

Indicator: A report on the feasibility of classifying wood waste for material recycling will be available in 2022.

6.5 HIGHER VALUE VALORISATION
6.5.1 Strategy

The Flemish Energy and Climate Plan 2021-2030 52 states that it is desirable to use wood products for products
with a long life span and to use them for energy generation only after the end of that life span. This approach
aligns with the principle of the value preservation cascade (see 3.1).

In the short term, the use of wood waste in such products is mainly through the mechanical recycling of wood
waste into board materials and some smaller-scale innovative applications, such as the production of activated
carbon from wood waste and the production of pallet blocks. These applications extend the carbon storage
function of discarded wooden products. Other innovative material applications are in full development.
Examples are the use of the lignin fraction of wood waste for the production of bio-aromatics, or the thermal
conversion of wood waste linked to the production of basic raw materials for chemistry.

For example, the Arcelor-Mittal/Renewi consortium in Ghent is implementing a project that will convert wood
waste into a reductant ('biocoal'), and part of the formed blast furnace gases will subsequently be used
through fermentation to produce a biofuel (bioethanol). This technology chain, according to the definitions of
the Waste Framework Directive, cannot yet be referred to as materials recycling.
If this innovative and new technology is proven to be workable and scalable and can achieve good energy
conversion rates
53 , it has great potential to become an important supplier of raw materials for material
applications in the chemical sector in the future. According to the principles of life cycle thinking, the new
technology is always compared with existing valorisation methods for wood waste.

By realising this connection with material applications in the chemical sector for example, we ensure:
1. a stronger anchoring of the steel and chemical industries in Flanders;
2. additional materials recycling options for wood waste;
3. an alternative for wood waste flows that cannot be recycled mechanically at the moment.

52 3.1.1.6.3. of the FECP 2021-2030
53 The current use of non-recyclable wood waste is us ually by means of a bio-CHP.

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The valorisation strategy aims to maximise the use of wood waste in applications that can achieve long-term
carbon storage. The chemical recycling of wood waste for the production of materials that achieve long-term
carbon storage is complementary to mechanical recycling.

As with the waste flows from nature, forest and green space management, the processing hierarchy differs
from the general processing hierarchy for biomass from the food chain as there are no markets for food or
feed applications.

Figure 11 shows the specific processing hierarchy for this cycle.

In addition to the potential for long-term carbon storage, other effects of each specific materials recycling
technology are also relevant: impact on other environmental compartments, net energy consumption,
resource consumption, market potential of finished products, etc.
For this reason, materials recycling must meet the following requirements:
• Recycling must occur with the efficient use of resources (energy, materials);
• The effects in the further life cycle of the recycled material (e.g. emissions, carbon buffering capacity,
etc.) must be analysed and weighed;
• Recycled waste flows must have as long a life span as possible before they are returned to the waste
circuit, but without compromising the quality of the product itself. This increases the carbon buffering
capacity of the material cycle.

The following concrete policy items are formulated as part of this strategy:

• Separately collected untreated wood waste (A-wood) is used for materials recycling. In this way, we
guarantee a constant supply for a pure wood waste flow that can be recycled with minimum pre-
treatment. This measure also ensures that the high recycling rates for wooden packaging are
maintained 54 . An exception to this requirement exists for producers of such wood waste in the wood
processing industry, who use this wood waste on site as an energy source, in compliance with the
applicable environmental legislation;

• Efforts are being made to further increase the share of recycled materials in the finished products of
the Flemish wood industry and chemical industry. The marketing of these finished products with a high
content of recycled materials is promoted in this respect through sustainable procurement policies
55 ,
and as part of a broader incentive to use more sustainable wood products in various applications;

• The import of wood waste for materials recycling and energy valorisation is facilitated as much as
possible within the applicable legal framework on cross-border transfers of waste, using the status of
'Pre-approved Establishment';

54 In 2018, 92.4% of commercial wood packaging sold i n Belgium was recycled (Source: Activity Report 201 9 VALIPAC)
55 Action A4.1. of the action plan of the Flemish str ategy for a sustainable bioeconomy. The initiators are the Department of Economy, Science and Innovati on (EWI) and the
Flemish Agency for Facility Operations.

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• The export of wood waste must be in line with the policy of the Government of Flanders on high-value
use of wood waste;

• The final stage of the cycle continues to be the energy valorisation of non-recyclable wood waste and
this remains important in this strategy. The Flemish Energy and Climate Plan 2021-2030 still assumes a
share of biomass in the renewable energy targets, albeit with more focus on green heat production at
the expense of green electricity production. The planned incineration capacity for wood waste in
Flanders must therefore be maintained for both reasons. However, this must be done within the scope
of the reformed support mechanism for green electricity and green heat (see government coalition
agreement 2019-2024).

The translation of this strategy into the various types of wood waste is clarified in the following overview.

Sub-flows/
origin
Approved for
WE production Incineration
ban

Notes
Incineration Fermentat
ion
A-wood Wood-processing
industry

Post-consumer
wood waste
Conditions

No
Yes

No
Yes

Yes
Incineration allowed provided it
comes from own production and
useful recovery of energy

B-wood

Yes No No
C-wood

Hazardous waste Yes No No

6.5.2 Targets for 2025

Targets for the end of 2025
► Chipboards produced in Flanders consist of at least 85% recycled post-consumer wood waste; an
increase of 15% compared to 2020.
6.5.3 Action programme
AP 3.2. Encourage high-value valorisation of wood waste

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In 2017, the proportion of recycled post-consumer wood waste in Flemish chipboards was already 75%. The
further increase of this proportion to 85% is feasible but also depends on the economic prerequisites
applicable to producers and the technological challenges involved in using a higher proportion of recycled
wood. In addition to this concrete target, the aim is to use 100% recycled wood in the long term.

We also support other innovative material applications of post-consumer wood waste by providing a
framework of measures enabling them to grow and acquire a mature market position.

The following actions are being organised to encourage the high-value valorisation of wood waste:

ACTIONS

3.2.1. Stimulate the demand side for products from recycled wood waste

The market for board material is characterised by a wide range of products that contain varying proportions of
recycled post-consumer wood waste. Promoting sales of board material with a high recycled content increases
the demand for these materials. We are also trying to introduce recycled content criteria for board materials
through the Sustainable Public Procurement instrument in order to stimulate demand. This also supports the
Circular Purchasing Green Deal (or its successor), the Circular Building Green Deal and the action A4.1 (bio-
based procurement) of the Bioeconomy Action Plan.

This action may be extended at a later stage to other materials than just board material.

Initiator: Unilin
Partners: Vlaanderen Circulair, VCB, Federation of the textile, woodworking and furniture industries
(Fedustria), OVAM

Indicator: The volume of board material marketed in Belgium has at least 70% recycled content.

3.2.2. Diversify material applications for post-consumer wood waste

The current market for material applications of wood waste is mature but also subject to economic and cyclical
risks, while the supply of wood waste is fairly stable. To mitigate these risks as much as possible and diversify
the opportunities for materials recycling, we will continue to research innovative material applications from
post-consumer wood waste.

Initiator: Research institutions (VITO, Ghent Bio-Economy Valley, universities)
Partners: Denuo, Federation of the textile, woodworking and furniture industries (Fedustria), Bioenergy
Platform, Vlaanderen Circulair, OVAM

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Indicator: Number of innovative material applications for post-consumer wood waste that are at least at TRL 5
(Technology Readiness Level) by 2025.

3.2.3. Embed circularity in the awareness campaigns about wood combustion

The Flemish government and relevant sector organisations regularly organise awareness-raising campaigns on
environmentally responsible wood combustion and waste sorting. This action aims to raise awareness of
citizens and companies regarding the circular nature of post-consumer wood waste (reuse, materials recycling)
as an additional argument to bring separately sorted waste to the regular collection channels. It is important in
this respect to align with the actions of the Green Deal for Domestic Wood Combustion.

Initiator: OVAM
Partners: Bioenergy Platform, Federation of the textile, woodworking and furniture industries (Fedustria), Val-
I-Pac, Steering Group of the Green Deal for Household Wood Combustion, VEKA, GOP Environment

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7 IMPACT VAN HET ACTIEPLAN
Dit hoofdstuk beschrijft enkele mogelijke effecten van de actieprogramma’s van het voorliggende actieplan.
Zowel de milieu-impact, de socio-economische impact als de financiële impact komen aan bod.

7.1 MILIEU-IMPACT
De CO 2-impact die de acties uit dit actieplan kunnen hebben op het milieu als de hoofd doelstellingen bereikt
zijn, is door VITO berekend. Hieronder worden de aanpak en de resultaten van de impactanalyse beknopt
weergegeven.

Voor de milieu-impact analyse ligt de focus op klimaatimpact (uitgedrukt in CO
2-equivalenten). Om de
klimaatimpact te berekenen, zette de OVAM het doelstellingenscenario uit binnen de drie
materiaalkringlopen. Dat scenario bestaat uit een hoeveelheid van een bepaalde biomassa(rest)stroom die
verdeeld wordt over een aantal mogelijke eindbestemmingen of toepassingen.
De hypothese hierbij is dat er een bestaande markt is voor (en dus vraag naar) de producten die uit de
biomassa(rest-)stromen gemaakt kunnen worden, dus zowel (hernieuwbare) energie als spaanplaten,
meubels, compost, veevoeding, ...
De hoeveelheden werden aan toepassingen toegewezen op basis van voorziene tendensen, zoals bv. het VEKP
2021-2030 en concrete doelstellingen naar materiaalrecyclage (bv. vezelgebruik). Voor andere toepassingen
werd de tendens vastgesteld in functie van toenemende/dalende afzet en is de tendens dus indicatief.

De resultaten geven de relatieve bijdrage van het actieplan weer, ze vergelijken dus de referentie situatie met
een toekomstige, te verwachten situatie in 2025.

De analyse volgt in grote lijnen de richtlijnen opgesteld door het JRC (Joint Research Centre van de Europese
Commissie) (JRC, 2011) rond levenscyclus denken voor afval in het algemeen en specifiek voor biologisch afval.

Voor elk van de gedefinieerde bestemmingen werd een CO
2-emissiefactor bepaald. Die factor houdt rekening
met
- directe emissies: emissies die rechtstreeks voortkomen uit behandeling van de biomassa(rest)stroom;
- indirecte emissies: emissies die zich verder in de keten voordoen, bijvoorbeeld tijdens het opwekken
van elektriciteit die mogelijk ingezet wordt voor de afvalbehandeling
- vermeden emissies: Hiervoor werd er een inschatting gemaakt van het specifiek vermeden proces en de
bijhorende emissies.

De vermeden emissies compenseren voor de nuttige functie die alsnog gehaald wordt uit de materiaal- of
reststroom. Indien deze vermeden emissies niet in rekening gebracht worden, zou de beste oplossing vaak zijn
om niets te doen met de materialen of reststromen, en ze dus te laten liggen of te storten, terwijl we de

page 98 of 157
materialen of reststromen net willen benutten om ze een nuttige functionaliteit binnen onze maatschappij te
geven.
Deze analyse kijkt dus vanuit het afvalperspectief
56 . De analyse start op het moment dat de
biomassa(rest)stroom vrijkomt. Er wordt dus geen rekening gehouden met de voorgeschiedenis ervan. Het
startpunt is de beschikbare biomassa(rest)stroom, en hoe deze te valoriseren 57 . Figuur 12 toont de
systeemgrenzen van de analyse.

Figuur 12: Systeemgrenzen van de milieu-impactanalyse

De CO
2-emissiefactoren voor de verschillende verwerkingstoepassingen werden bepaald op basis van
beschikbare gegevens uit relevante literatuur of tools (zie referenties in bijlage 9.11). Een belangrijke
opmerking hierbij is dat deze analyse vaak andere systeemgrenzen hanteert dan de bronnen waarop ze
beroep doet. De systeemgrenzen en gevolgde methodiek hangen immers af van de specifieke vraagstelling. De
in de literatuur beschikbare CO 2-emissiefactoren werden kritisch geanalyseerd en werden indien nodig
omgerekend zodat ze in lijn zijn met het doel en de reikwijdte van deze impactanalyse. De emissies van
biogene CO 2 worden meegenomen in de analyse. Ze worden echter apart weergegeven in de resultaten.

Omdat er gekeken wordt vanuit een levenscyclus perspectief, beperkt de analyse zich niet tot Vlaanderen. De
resultaten geven dus niet enkel de Vlaamse emissies weer. Ze zijn een gevolg van een Vlaamse actie of

56 Een analyse vanuit het afvalperspectief verschilt van een analyse vanuit het productperspectief. Als men kijkt vanuit het afvalperspectief, naar de valo risatie van afval,
wordt er meegenomen welk eindproduct vermeden wordt . Dit is meestal niet het geval in analyses die ver trekken vanuit het productperspectief en becijferen wat de impact
is van de productie van een bepaald product (bijvoo rbeeld 1 kWh elektriciteit). De functionele eenheid van beide analyses verschilt ook. Een analyse die vertrekt vanuit het
productperspectief heeft meestal als functionele ee nheid een bepaalde hoeveelheid eindproduct. Een ana lyse die vertrekt vanuit het afvalperspectief heeft als functionele
eenheid een hoeveelheid te verwerken afval.
57 Enkele voorbeelden van het werken met vermeden emi ssies: brandhout dat naar verbranding bij particuli eren gaat zorgt ervoor dat de verbranding van een e quivalente
hoeveelheid stookolie of gas vermeden wordt; bermma aisel dat naar compostering gaat, zorgt ervoor dat de productie van een equivalente hoeveelheid NPK me ststof, veen
en energie uit zeefoverloop vermeden wordt; A/B hou t dat naar materiaalgebruik gaat zorgt ervoor dat de invoer vanuit het buitenland van een equivalente hoeveelheid hout
vermeden wordt; preventie van voedselverlies in het restafval zorgt ervoor dat de productie en verwerk ing van dit voedsel vermeden wordt.

page 99 of 157
maatregel, maar de verandering in emissies vindt niet noodzakelijk plaats op Vlaams grondgebied.
Bijvoorbeeld indien er in Vlaanderen voedselverlies vermeden wordt, zorgt dit ervoor dat de productie van dit
voedsel, evenals het vergisten van dit voedsel niet plaatsvindt. De emissies worden vermeden, echter niet
volledig op Vlaams grondgebied. Voor de productie van voedsel worden bijvoorbeeld ook meststoffen
gebruikt. Omdat voedselproductie vermeden wordt, wordt ook meststofproductie vermeden. Deze laatste
vindt niet noodzakelijk op Vlaams grondgebied plaats.

Voor de inschatting van de klimaatimpact moet daarnaast ook de koolstofbufferfunctie van
materiaalrecuperatie worden meegenomen. Het actieplan is erop gericht om meer materiaalrecyclage te
realiseren, waardoor koolstof voor bepaalde tijd wordt opgeslagen in deze materialen. Op basis van de IPCC
richtlijnen
58 wordt er per droge ton rondhout ca. 101 kg koolstof opgeslagen. Bij plaatmateriaal bedraagt de
koolstofopslag 184 kg per droge ton plaatmateriaal. De duurtijd van deze koolstofopslag hangt af van de
toepassingswijze van het houten product. De IPCC richtlijnen hanteren een halfwaardetijd 59 voor gezaagd hout
van 35 jaar en voor plaatmateriaal 25 jaar.

Milieu-impactanalyse van de doelstelling voedselverlies in de kringloop voedsel(rest)stromen

In 2015 was er 907.000 ton voedselverlies in Vlaanderen. Dit voedselverlies gaat naar diverse
verwerkingsopties, maar kan in grote lijnen samengevat worden in de volgende opties:
‘lozen/uitrijden/onderwerken/laten liggen/storten’, ‘veevoeding’, ‘bio-energie en -brandstof’, ‘biochemie’,
‘vergisting en compostering’, ‘boerderijcompostering’, ‘restafval’ en ‘preventie van voedselverlies’. Dit
actieplan zet voornamelijk in op preventie van voedselverlies, zowel aan de bron als bij de consument.
Hierdoor kan de klimaatimpact van de verwerking van dit voedselverlies tegen 2025 met ongeveer 342 kton
CO
2 eq. 60 gereduceerd worden. Veruit het grootste deel van deze reductie is het gevolg van het vermijden van
voedselverlies waardoor zowel minder eindverwerking nodig is, als minder voedselproductie. Figuur 1 13 geeft
de hoeveelheid voedselverlies weer per bestemming in 2015 (referentie) en in het scenario van het halen van
de doelstelling preventie voedselverlies voor 2025. Figuur 1 4 geeft weer hoe de reductie van de klimaatimpact
gerealiseerd wordt. De klimaatemissies die in deze figuur weergegeven zijn, geven het verschil weer tussen de
situatie in 2025 en 2015. De figuur geeft het resultaat weer voor de totale hoeveelheden CO 2 eq. (biogeen en
fossiel) in het actieplan. Dit wil zeggen dat de hoeveelheid die naar een bepaalde verwerkingsoptie gaat hier
van belang is. Deze wordt immers vermenigvuldigd met de emissiefactor toegekend aan de betreffende
verwerkingsoptie. Door de uitvoering van het actieplan zullen er vermeden emissies gerealiseerd worden in de
toepassingen ‘restafval’, ‘lozen/uitrijden/onderwerken/laten liggen/storten’ en ‘preventie voedselverlies’.
Omdat er in 2025 grotere hoeveelheden naar ‘compostering en vergisting’ en ‘veevoeding’ gaan, vindt er een
stijging plaats van de CO 2 eq. emissies in die verwerkingsopties.

58 2006 IPCC Guidelines for National Greenhouse Gas I nventories, Chapter 12, Harvested Wood Products, ta ble 12.4.
59 Halfwaardetijd: aantal jaar dat voorbijgaat voorda t de helft van het materiaal buiten gebruik wordt g esteld en dus zijn koolstofopslagfunctie verliest.
60 De emissies van fossiele oorsprong (plus N 2O en CH 4 van biogene oorsprong) dalen met 235 kton CO 2 eq, de emissies van biogene CO 2 dalen met 107 kton.

page 100 of 157

Figuur 13: Hoeveelheid voedselverlies per bestemming voor het halen van de preventiedoelstelling voedselverlies in de kringloop
voedsel

Figuur 14: Evolutie van de klimaatimpact in kton CO 2 eq.. per bestemming voedselverlies bij het halen van de preventiedoelstelling
voedselverlies in de kringloop voedsel - totale hoeveelheid koolstof emissies – situatie in 2025 minus de situatie in 2015 6162

61 De hoeveelheid fossiele CO 2 equivalenten in de figuur bevat ook emissies van N 2O en CH 4 van biogene oorsprong.
62 Het was niet voor alle toepassingen mogelijk om de biogene CO 2 emissiefactor te bepalen, het betreft de toepassin gen: ‘lozen eetbare voedselreststromen uit de visse rij’,
‘biobrandstof productie uit voedselresten afkomstig van de voedingsindustrie, eventuele biogene CO 2 emissies die zich voordoen tijdens de verwerking v an
voedselreststromen tot veevoeding.
0 50 100 150 200 250 300 350
1 - preventie voedselverlies
2 - lozen/uitrijden/onderwerken/laten liggen/storten
3 - veevoeding
4 - bio-energie/biobrandstof/biochemie
5 - vergisting en composteren
6 - boerderijcompostering
7 - restafval
kton biomassa
2015 2025
-250 -200 -150 -100 -50 0 50
1 - preventie voedselverlies
2 - lozen/uitrijden/onderwerken/laten liggen/storten
3 - veevoeding
4 - bio-energie/biobrandstof/biochemie
5 - vergisting en composteren
6 - boerderijcompostering
7 - restafval
kton CO2 eq
totaal biogene koolstof fossiel

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Milieu-impactanalyse van de kringloop reststromen uit natuur-, bos- en groenbeheer.

De hoeveelheid (rest)stromen uit natuur-, bos- en groenbeheer in Vlaanderen bedroeg ca. 1.079.000 ton. Het
betreft: brandhout, tak- en tophout, stamhout uit landschapsbeheer, takhout uit landschapsbeheer,
bermmaaisel, natuurmaaisel en overig groen afval. Deze (rest)stromen kennen verschillende
verwerkingsopties waarbij niet elke optie voor elke (rest)stroom van toepassing is. De verwerkingsopties zijn:
‘verbranding bij particulieren’, ‘verbranding bij bedrijven/gemeentes’, ‘materiaaltoepassing’, ‘onbeheerd
laten’, ‘bodemverbeteraar’, ‘compostering’ en ‘boerderijcompostering’.

Door het uitvoeren van het actieplan kan tegen 2025 de klimaatimpact van de verwerking van deze
biomassareststromen met ongeveer 50 kton CO
2 eq. 63 gereduceerd worden. Het grootste deel van deze
reductie is het gevolg van een omslag van verbranding en compostering naar materiaalgebruik.
Verder voorziet dit actieplan ook een verschuiving van de inzet van hout voor verbranding bij particulieren
(afbouw open haard en minder performante houtkachels in het kader van de Green Deal Huishoudelijke
Houtverbranding) naar verbranding bij bedrijven of gemeentes. Dit zorgt ook voor een reductie in CO 2 eq.
emissies. Figuur 1 5 geeft de hoeveelheid biomassa weer per verwerkingsoptie in 2017/2018 (referentie) en in
het scenario voor 2025. Figuur 6 geeft weer hoe de reductie van de klimaatimpact gerealiseerd wordt voor de
kringloop natuur- en groenbeheer. De klimaatemissies die in deze figuur weergegeven zijn, geven het verschil
weer tussen de situatie in 2025 en 2017/2018. De figuur geeft het resultaat weer voor de totale hoeveelheden
in het actieplan. Dit wil zeggen dat de hoeveelheid die naar een bepaalde verwerkingsoptie gaat hier van
belang is. Deze wordt immers vermenigvuldigd met de emissiefactor toegekend aan de betreffende
verwerkingsoptie.
Door de uitvoering van het actieplan zullen er vermeden emissies (totale hoeveelheid, dus fossiele plus
biogene CO 2 eq.) gerealiseerd worden in de verwerkingsopties ‘compostering’, ‘onbeheerd’,
‘materiaaltoepassing’ en ‘verbranding particulieren’. Omdat er in geval van een goedgekeurd kader in 2025
grotere hoeveelheden naar ‘boerderijcompostering’, ‘bodemverbeteraar’ en ‘verbranding bij bedrijven en
gemeentes’ gaan, vindt er een stijging plaats van de biogene CO 2 eq. emissies in die verwerkingsopties.

63 De emissies van fossiele oorsprong (plus N 2O en CH 4 van biogene oorsprong) stijgen met 4 kton CO 2 eq., de emissies van biogene CO 2 dalen met 53 kton.

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Figuur 15: Hoeveelheid biomassa per verwerkingsoptie voor de kringloop natuur-, bos- en groenbeheer

Figuur 16: Evolutie van de klimaatimpact in kton CO 2 eq.. per verwerkingsoptie voor de kringloop natuur-, bos- en groenbeheer – totale
hoeveelheid koolstof emissies – situatie in 2025 minus de situatie in 2017/2018 64

64 De hoeveelheid fossiele CO 2 eq. in de figuur bevat ook emissies van N 2O en CH 4 van biogene oorsprong.
0 100 200 300 400 500 600 700 800 900
1 - verbranding particulieren
2 - verbranding bedrijven/gemeentes
3 - materiaaltoepassing
4 - onbeheerd
5 - bodemverbeteraar
6 - compostering
7 - boerderijcompostering
kton biomassa
2017/2018 2025
-100 -80 -60 -40 -20 0 20 40 60 80
1 - verbranding particulieren
2 - verbranding bedrijven/gemeentes
3 - materiaaltoepassing
4 - onbeheerd
5 - bodemverbeteraar
6 - compostering
7 - boerderijcompostering
kton CO 2 eq
totaal biogene koolstof fossiel

page 103 of 157
Bij de verwachte verschuiving van huishoudelijke houtverbranding naar middelgrote stookinstallaties of
materiaalgebruik zal ook een impact zijn op de emissies van andere verontreinigende stoffen . De
impactberekening beperkt zich tot PM 2,5 (fijn stof in particulate mass = in massa) en NO x.

Bijkomend werden volgende aannames gedaan:
− NO
x: Voor particuliere kachels werd met een emissiefactor van 95 ton/PJ gerekend. Bij middelgrote
stookinstallaties werd een emissiefactor van 145 ton/PJ 65 genomen. Dit omdat door de hogere
verbrandingstemperaturen er meer NO x emissies plaatsvinden.
− PM 2,5 : Voor particuliere kachels werd een gemiddelde emissiefactor van 438 ton/PJ (2015) gebruikt.
− Omdat het particuliere kachelpark door een ‘natuurlijke’ vervanging door efficiëntere kachels ook leidt
tot emissiereductie, werd deze vervanging bij de impactberekening niet in rekening gebracht. De
gemiddelde emissiefactor van 2015 werd behouden voor de impactberekening.

Voor de middelgrote stookinstallaties werd de emissiefactor berekend op basis van een emissienorm
van 50 mg/Nm³ (6% zuurstof).

Op basis van deze aannames leidt de vermindering van de houtstook door de verschuiving naar middelgrote
stookinstallaties/materiaalgebruik tot een reductie van 2500 ton PM
2,5 in 2030 ten opzichte van 2015 . Indien
rekening wordt gehouden met de verwachte vervanging van het kachelpark door efficiëntere toestellen zou de
emissiereductie door verschuiving van het brandhoutgebruik nog steeds 1300 ton PM 2,5 bedragen.

Houtverwarming levert in de totale PM
2,5 emissievracht een bijdrage van 46%, of 5693 ton in 2018 (Bron:
Emissie inventaris lucht, VMM). De verschuiving naar andere toepassingen kan dus leiden tot een significante
reductie voor deze emissieparameter.

Voor NO
x blijven de emissies quasi gelijk in 2030 ten opzichte van 2015 .

Deze effecten moeten met de nodige omzichtigheid worden geïnterpreteerd, omdat de onzekerheden op het
vlak van energieverbruik en emissiefactoren van houtkachels groot zijn. Ook is de samenstelling van het
toekomstige kachelpark moeilijk in te schatten, wat een grote invloed heeft op de emissiefactoren en het
houtverbruik.

Milieu-impactanalyse van de kringloop biomassareststromen uit afvalhout

In 2017/2018 werd 1.571.000 ton A/B hout verwerkt in Vlaanderen. De te verwerken hoeveelheid van deze
reststroom zal in 2025 stijgen tot 2.210.000 ton. De verwerkingsopties voor deze reststroom zijn: ‘verbranding
in binnenlandse biomassacentrales’, ‘verbranding in buitenlandse biomassacentrales’, ‘verbranding bij
particulieren’, ‘de staalindustrie’, ‘materiaaltoepassing’ en ‘verbranding als fractie van restafval’. Ondanks de

65 Uitgaand van een werkelijke emissie bij hardhout v erbranding van 195 mg/Nm³ bij 6% zuurstof. (Bron: V ITO (2009), BBT studie verbranding van hernieuwbar e
brandstoffen)

page 104 of 157
stijging in de hoeveelheid A/B hout die verwerkt wordt, kan door het uitvoeren van dit actieplan tegen 2025 de
klimaatimpact van de verwerking met ongeveer 70 kton CO 2 eq 66 gereduceerd worden. Dit is voornamelijk het
gevolg van de geplande omslag van ‘verbranding bij particulieren en verbranding als fractie van het restafval’
naar verbranding in installaties met een betere energie-efficiëntie en koolstofopslag in materiaalproductie’.
Figuur 1 7 geeft de hoeveelheid biomassa weer per verwerkingsoptie in 2017/2018 (referentie) en in het
scenario voor 2025. Figuur 8 geeft weer hoe de reductie van de klimaatimpact gerealiseerd wordt voor de
kringloop afvalhout. De klimaatemissies die in deze figuur weergegeven zijn, geven het verschil weer tussen de
situatie in 2025 en 2017/2018. De figuur geeft het resultaat weer voor de totale hoeveelheden in het
actieplan. Dit wil zeggen dat de hoeveelheid die naar een bepaalde verwerkingsoptie gaat hier van belang is.
Deze wordt immers vermenigvuldigd met de emissiefactor toegekend aan de betreffende verwerkingsoptie.
Door de uitvoering van het actieplan zullen er vermeden emissies gerealiseerd worden in elk van de
verwerkingsopties (indien men naar de totale hoeveelheid, dus fossiele plus biogene CO 2 eq. kijkt).

Figuur 17: Hoeveelheid biomassa per verwerkingsoptie voor de kringloop afvalhout 67

66 De emissies van fossiele oorsprong (plus N 2O en CH 4 van biogene oorsprong) dalen met 86 kton CO 2 eq., de emissies van biogene CO 2 stijgen met 14 kton.
67 De hoeveelheid die verwerkt wordt in Vlaamse bioma ssacentrales en de hoeveelheid die naar materiaalge bruik gaan betreft zowel de hoeveelheid in België g eproduceerde
(rest)stromen als de invoer.
0 200 400 600 800 1000 1200 1400
1 - Biomassacentrales Vlaanderen
2 - Biomassacentrales buitenland
3 - Verbranding particulieren
4 - Staalindustrie
5 - Materiaalgebruik
6 - Verbranding als fractie van restafval
kton biomassa
2017/2018 2025

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Figuur 18: Evolutie van de klimaatimpact in kton CO 2 eq. per verwerkingsoptie voor de kringloop afvalhout – totale hoeveelheid
koolstof emissies – situatie in 2025 minus de situatie in 2017/18 6869
De verhoogde inzet van houtafval voor energietoepassingen gaat ook gepaard met emissies van
verontreinigende stoffen. De lokale impact van deze bijkomende emissies wordt op basis van project-MER’s
geëvalueerd.

7.2 SOCIO-ECONOMISCHE IMPACT
De socio-economische impact van de acties uit dit actieplan wordt, waar mogelijk, indicatief weergegeven. Een
impactanalyse berekent de verwachte impact. Belangrijk te vermelden is dat de coronacrisis waarschijnlijk een
grote en op dit moment nog onvoorspelbare impact zal hebben op de betrokken sectoren en bijgevolg ook op
de acties uit dit plan.

De focus van de socio-economische impactanalyse ligt op werkgelegenheid en kostenbesparing. De socio-
economische impact werd op een (semi-)kwalitatieve manier geanalyseerd. Er zijn data beschikbaar in Input-
Output Modellen of via de Nationale Bank, maar die zijn ofwel onvoldoende gedetailleerd ofwel te specifiek
voor een volledige kwantificatie. Tijdens de socio-economische impactanalyse werd daarom voor de drie
waardeketens en het doelstellingenscenario (zie 7.1) nagegaan in welke sectoren de verhoging van de
werkgelegenheid zich voornamelijk zal voordoen na implementatie van dit actieplan.

De uitvoering van dit actieplan zal een effect hebben op de tewerkstelling in de ganse betrokken verwerkings-
of waardeketen, dus zowel voor inzamelen, sorteren, transport, eindverwerking en valorisatie van het
verwerkt materiaal in eindproducten. Door het maken van deze eindproducten uit afval vermijden we
eveneens dat deze producten vanuit primaire grondstoffen gemaakt zouden moeten worden.

68 De hoeveelheid fossiele CO 2 eq. in de figuur bevat ook emissies van N 2O en CH 4 van biogene oorsprong.
69 Voor biomassacentrales buitenland is de emissiefac tor 0 kg CO2 eq. Het vermeden product is gelijk aan de te verwerken (rest)stroom. Dit verklaart waarom er geen
vermeden emissies zichtbaar zijn.
-800 -600 -400 -200 0 200 400 600 800 1000 1200
1 - Biomassacentrales Vlaanderen
2 - Biomassacentrales buitenland
3 - Verbranding particulieren
4 - Staalindustrie
5 - Materiaalgebruik
6 - Verbranding als fractie van restafval
totaal biogene koolstof fossiel

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Het nieuwe actieplan zet volop in op ‘meer preventie’, ‘beter sorteren en inzamelen’ en ‘meer hoogwaardige
valorisatie’.
Zowel meer preventie als beter sorteren en inzamelen zullen leiden tot een stijgend aantal functies rond
sensibilisering, procesbegeleiding en onderzoeksfuncties. Verwacht wordt dat de doelstelling rond schenking
uit de voedingsretail en de verwerking van voedselverlies tot producten voor humane consumptie leidt tot
meer jobs in bijv. de sociale economie. Preventie aan de bron kan ook leiden tot vermeden kosten bv. door
een daling van het voedselverlies, het vermijden van de aankoop van een nieuw product, minder
beheerskosten bij groenonderhoud. Door de huidige voedselverliezen voedselveilig toegankelijk te maken voor
mensen in armoede kunnen ook kostenbesparingen gerealiseerd worden voor de kansengroepen en door de
sociale organisaties die voor de logistiek en herverdeling instaan.
Het aantal jobs dat zal bijkomen naar aanleiding van dit actieplan is moeilijk uit te drukken in concrete cijfers.
Wel is het zo dat het EU budget voor de toekomst (Horizon Europe cluster ‘Food and Natural resources’)
voorziet dat EUR 10 miljard geïnvesteerd zal worden in onderzoek en innovatie in voeding, landbouw,
plattelandsontwikkeling en bio-economie
70 . Ter vergelijking: in het aflopende onderzoeksprogramma Horizon
2020 was een budget van EUR 3.85 miljard 71 voor societal Challenge 2 (Food, sustainable agriculture and
forestry, marine, maritime and inland waters research, and the bioeconomy) voorzien. De Europese
Commissie voorziet dus wel om de ondersteuning voor duurzame consumptie en productie van biomassa met
een factor 3 te verhogen.

Indien reststromen gevaloriseerd worden, kan dit in een materiaaltoepassing of energietoepassing zijn. In het
vorige actieplan (Actieplan 2015-2020) werd al aangegeven dat de bruto toegevoegde waarde en
tewerkstelling 4 tot zelfs 10 keer hoger kan zijn voor materiaaltoepassingen van biomassa ten opzichte van
energetische toepassingen (Carus et al., 2014
72 ). Inmiddels publiceerden Carus et al. (2016) 73 ook een overzicht
van de tewerkstelling per ton ingezet materiaal dat naar verschillende toepassingen gaat ( figuur 19). Als men
naar de tewerkstelling in de eindverwerking kijkt (blauwe balken in de figuur) blijkt dat materiaaltoepassingen
voor meer tewerkstelling zorgen dan toepassingen in bio-energie of biobrandstof. Inzetten van reststromen in
de productie van bio-gebaseerde rubber en plastics creëert het hoogst aantal jobs per ingezette ton
reststroom (droog materiaal), gevolgd door inzet in bio-gebaseerde chemicaliën en chemische producten. Om
dit overzicht te generen gebruikten Carus et al. (2016) data van Eurostat, EU-28 gemiddelden. In dit onderzoek
werd de valorisatie van compost niet meegenomen.

70 COM(2018)321 final, https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=COM%3A2018%3A321%3AFIN
71 https://ec.europa.eu/research/bioeconomy/pdf/ec_bio economy_strategy_2018.pdf

72 Carus M, Dammer L, Hermann A, Essel R. (2014). Proposal for a reform of the RED to a Renewable Energy and Materials Directive (REMD). Industrial Biotechnology, 10(4): p. 269-274.
73 Carus M. 2016. HOW TO SHAPE The Next Level of The European Bio-Based Economy? Downloadable from: http://bio-based.eu/policy/

page 107 of 157

page 108 of 157

7.3 BUDGETTAIRE IMPACT
Gelet op het feit dat de acties in dit plan zowel op korte termijn kunnen worden uitgevoerd als over een
langere periode worden gespreid, en het feit dat de voorgestelde acties getrokken zullen worden door diverse
stakeholders (zowel overheden als private partners) maakt het een inschatting van de budgettaire impact niet
eenvoudig.

In de overzichtstabel in bijlage 9.10 wordt een overzicht gegeven van de acties. Een aantal acties hangen af
van goedkeuring van projectfinanciering. Waar dat van toepassing is, is het aangeduid in de tabel. Voor de
aangegeven acties die in voorbereiding zijn, wordt er geen bijkomende financiële impact verwacht.
Vooral voor de uitvoering van acties die de opstart van projecten vragen, moeten middelen worden gezocht.
Door de Vlaamse overheid, trekkers en partners van de acties wordt daarom – voor zover dat in hun
mogelijkheden ligt – maximaal ingespeeld op beschikbare financieringskanalen (Europees, Belgisch, Vlaams,
lokaal). De mate van uitwerking van acties zal deels afhangen van de finaal beschikbare middelen. Dit is een
belangrijk gegeven dat voor het hele plan geldt.

In bijlage 9.6 is een overzicht opgenomen van de financieringsmogelijkheden voor de acties in dit actieplan die
betrekking hebben op voedselverlies/-reststromen.

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8 FOLLOWING UP THE ACTION PLAN
8.1 CONSULTATION WITH STAKEHOLDERS
It has been a deliberate policy choice in recent years to include all target groups concerned
in the whole policy process. This approach is also used for the "Circular food loss and biomass (waste) flows
2021-2025" action plan given the positive results that this yielded.

8.1.1 Umbrella steering group
The umbrella steering group will monitor the progress of the actions for the three cycles and, if necessary,
adjust actions during the term of the plan. The steering group consists of the initiators of all action
programmes and meets at least once a year. The initiator of each action reports annually to the steering group
on the progress of the results. An annual overview of priority action (programmes) to be carried out is
prepared by the overall steering group. This prioritisation is based on the action programmes mentioned in the
summary because they have the greatest impact on achieving the targets stated per cycle. This steering group
can take decisions on the establishment of specific working groups during the planning period. It can also
decide on adding participating organisations and actions to this plan.

The steering group is coordinated by OVAM and acts as a consultation platform for this action plan, as
stipulated in Article 19, §1 of the Materials Decree. This will also be aligned with the activities in other
consultative forums and with the progress of other plans or initiatives referred to in this plan, in particular for
example:
- the consultation platform and the respective working groups within the framework of the Implementation
Plan for Household and Similar Commercial Waste;
- the consultative forum within the framework of the Plastics Implementation Plan;
- the Food Policy Network;
- the interdepartmental working group on bioeconomy.

8.1.2 Steering group per cycle
A steering group per cycle follows up the implementation of the action programmes. This steering group
consists of the initiators of the action programmes and meets 3 to 4 times a year. This steering group reports
on the progress of the actions to the umbrella steering group.
- The "Food Loss from Producer to Consumer" steering group is coordinated by OVAM and the
Department of Agriculture and Fisheries. This steering group also coordinates with the other regions
and the federal government in the context of monitoring food waste for Europe (see action 8.4.1.);
- The "Open Space" steering group is coordinated by OVAM, VLM and ANB;
- The "Wood Waste" steering group is coordinated by OVAM in cooperation with EWI.

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8.1.3 Stakeholder consultation per cycle
All parties who are initiators or partners in the actions as well as the stakeholder organisations (the MiNa
Council, Serv, etc.) can participate i n the stakeholder consultation per cycle with a view to a timely
implementation of this action plan. The stakeholder consultation normally takes place twice a year.

8.2 REPORTING AND EVALUATION
8.2.1 Reporting per action/programme
Each action has an initiator and partners. The initiator coordinates, organises consultation meetings with the
partners involved, monitors the targets, ensures/controls the resources and is responsible for reporting to the
steering group. Both the initiator and the partners can be a Flemish public sector body, a sector federation, a
research institution, etc. The initiators and partners are always included for each action in this action plan. A
complete overview of the initiator and partners of each action is also shown in the overview in Annex 9.10.
8.2.2 Working with a schedule
For most actions (except for food loss), the initiator prepares a planning sheet for each action. It clearly
describes the (sub-)actions to be taken and the partners involved. The planning sheet describes in broad terms
what is required to achieve the proposed targets within the period 2021-2025.
8.2.3 Progress follow-up
The initiator of each action reports each year to the steering group on the progress of the results. Progress is
monitored on the basis of predefined indicators for each (sub)action.
8.2.4 Reporting and evaluation
An interim progress report and evaluation will be carried out by OVAM halfway through the planning period.
This is done together with the Department of Agriculture and Fisheries for the food loss section of cycle 1. The
implementation of the actions as described in the plan will be weighed against the respective quantitative and
qualitative targets. If necessary, actions will be adjusted or new actions introduced. At the end of the planning
period, after the actions have been implemented and depending on the final evaluation of this plan, a SWOT
analysis will assess the extent to which bottlenecks have been removed. This will also show what new actions
need to be taken to achieve the targets by 2030.
8.3 INFORMATION AND COMMUNICATION
To support the intended dynamic character and follow-up of the action plan, the publicly accessible website
www.voedselverlies.be will be continued and kept up-to-date by OVAM and the Department of Agriculture
and Fisheries.
For biomass (waste) flows from nature, forest and landscape management, information can be found on
www.ovam.be, and www.vlm.be (IPO theme group Harvestable Landscapes) .

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Information on wood waste from industry and households is available at: www.ovam.be.
In addition, the initiators of this action plan are responding to opportunities that arise at events and other
consultations with stakeholders.

8.4 DATA MONITORING
8.4.1 Monitoring food waste and food losses
Over the past five years, the entire chain has worked together to improve a monitoring system for food waste
and food losses at the Flemish level ( www.voedselverlies.be/monitor ).

Biennial report for Flanders
OVAM continues to monitor food losses by means of a biannual report on the supply of and destinations for
food losses and food waste.

The Department of Agriculture and Fisheries and the Institute for Agricultural and Fisheries Research (ILVO)
are responsible for reporting on the quantities and destinations of food losses and by-products (including soil
use and animal feed) from the primary sector to OVAM. Although substances meant for use as feed materials
as referred to in Article 2, section 2, e) of Directive 2008/98/EC are excluded from the scope of that Directive
and therefore need not be measured as food waste, information on food originally intended for human
consumption and subsequently transformed into feed (including former foodstuffs as defined in item 3 of Part
A of the Annex to Commission Regulation (EU) no. 68/2013) is important for the understanding of food-related
material flows and also useful in the context of a targeted prevention policy.

Europe requests a thorough measurement and comprehensive reporting at every stage of the food supply
chain and every four years (see below). This implies a study in each sector, including a measurement of the
amount of food waste in residual waste in a sample of companies per sector.

Annual reporting to Europe
According to Article 37, section 3 of Directive 2008/98/EC (Waste Framework Directive), Member States must
report the quantities and destinations of food waste annually to Europe from the production year 2020
onwards. OVAM coordinates the reporting at the Flemish level and for the other regions. The collectors
concerned (IHM), businesses, business sectors, public authorities, processors, etc. shall communicate the
necessary data on the production and destinations of food waste and socio-economic data to OVAM annually,
starting from production year 2020 and in accordance with the provisions of VLAREMA and the decision of the
European Commission of 03.05.19 (C(2019)3211) - measuring food waste
74 ). Where possible, reporting is done

74 Europa geeft aan dat er verschillende soorten leve nsmiddelen zijn die doorgaans als of met afvalwater worden weggegooid, zoals drink- en mineraalwater i n flessen en
dranken en andere vloeistoffen. Voor het meten van dergelijke afvalstoffen bestaat momenteel geen meth ode die een voldoende niveau van vertrouwen en verg elijkbaarheid
van de gerapporteerde gegevens zou waarborgen. Daar om moeten dergelijke soorten levensmiddelen niet al s levensmiddelenafval worden gemeten. Indien de vlo eistoffen
geloosd mogen worden, is het voor de lidstaten moge lijk om informatie over dit soort levensmiddelen op vrijwillige basis te rapporteren. (C-2019-3211-F1- NL, p5)

page 112 of 157
at group level (e.g. retail). The first report – concerning 2020 – shall be sent by OVAM to Eurostat by 30 June
2022.

In addition to annual reporting, Europe requires a sorting analysis of the food loss/waste in residual waste at
each stage of the food supply chain , every four years. These analyses (by sampling) are carried out per sector
(retail, hotel and restaurants, catering, etc.) in cooperation with the collectors and OVAM. The first sorting
analysis will occur in the period 2020-2022.

Output:
• biennial report that monitors food losses and food waste for Flanders (publish production 2020 in
2022, publish production 2022 in 2024)
• annual reporting for Belgium to Europe (from production 2020, publication from 2022)
• four-yearly sorting analysis per link in the food chain for Flanders as part of the reporting to Europe

8.4.2 Monitoring of biomass (waste) flows from the nature, forest and landscape management
flow and wood waste from the industry and households flow
OVAM is expanding the monitoring to follow the market evolution, availability, suitability and applications of
biomass waste flows from the 'open space' and wood waste cycles in Flanders. The concerned business
sectors, public authorities and other managers of biomass (waste) flows shall provide the necessary data for
this purpose in accordance with the provisions of VLAREMA. At the Flemish level, this is done via the Biomass
market analysis, which is updated every two years. The monitoring visualises, where possible, the incoming
and outgoing biomass flows in Flanders by means of flow charts. We complete the knowledge gaps in
consultation with the sectors and local authorities involved to obtain the best possible picture. A more
structured approach is needed to better align the supply and demand of biomass (waste) flows. The
monitoring of price evolution and more price transparency is useful for policy monitoring in the case of
important biomass flows.

Output: biomass market analysis (production 2020, 2022, 2024)

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9 BIJLAGEN
9.1 DEFINITIES
Afval(stoffen/stromen ): Elke stof of elk voorwerp waarvan de houder zich ontdoet, voornemens is zich te
ontdoen of zich moet ontdoen (art. 3 Materialendecreet).

Bijproducten: Bijproducten worden geproduceerd als integraal onderdeel van een productieproces van het
hoofdproduct, maar kunnen met zekerheid en zonder verdere behandeling nuttig worden gebruikt, rechtmatig
en zonder ongunstige effecten op het milieu of de menselijke gezondheid
75 . Materialen die voldoen aan de
omschrijving van bijproduct moeten niet als afvalstof worden beschouwd. De voorwaarden hiervoor werden in
artikel 37 van het Materialendecreet vermeld.

Voorbeelden van bijproducten zijn stro (strooisel), houtsnippers uit de houtverwerkende industrie
(spaanplaten), draf (veevoeder), misvormde of over-/ondermaatse appels (sapproductie), enz. Afvalstromen
kunnen niet zomaar ingezet worden en moeten verwerkt worden opdat, in de eerste plaats, de negatieve
gevolgen voor de menselijke gezondheid en het milieu tot een minimum beperkt blijven.

Bioafval (biowaste) : Dit omvat biologisch afbreekbaar tuin- en plantsoenafval, levensmiddelen- en
keukenafval van huishoudens, kantoren, restaurants, groothandel, kantines, cateringfaciliteiten en winkels en
vergelijkbare afvalstoffen van de levensmiddelenindustrie. (Kaderrichtlijn afval: NL L 150/120 Publicatieblad
van de Europese Unie 14.6.2018).
Art. 22 van de Kaderrichtlijn afval voorziet dat de lidstaten ervoor zorgen dat bioafval, uiterlijk 31 december
2023 in overeenstemming met artikel 10, leden 2 en 3, ofwel aan de bron wordt gescheiden en gerecycleerd,
ofwel gescheiden wordt ingezameld en gerecycleerd en (56) waarvan de output aan de desbetreffende hoge
kwaliteitsnormen voldoet.

75 Europese kaderrichtlijn afvalstoffen 2008/98/EG

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Figuur 20: Schematische weergave van bioafval.

Biomassa:
Biomassa omvat 76 :
- de biologisch afbreekbare fractie van producten, afvalstoffen en residuen van biologische oorsprong van:
* de landbouw (inclusief plantaardige en dierlijke stoffen);
* de bosbouw en aanverwante bedrijfstakken, inclusief de visserij en de aquacultuur
- de biologisch afbreekbare fractie van industrieel en huishoudelijk afval.

Biomassareststromen: Biomassareststromen omvatten afval- en restfracties van biomassa die aan drie
voorwaarden voldoen:
- Ze worden niet gebruikt waarvoor de biomassa oorspronkelijk bedoeld was of geproduceerd werd.
- Ze komen vrij en zijn mobiliseerbaar.
- Een ander, nuttig gebruik is gewenst.

Voorbeelden van biomassareststromen zijn reststromen van de voedingsindustrie, dierlijke bijproducten, gft-
afval, sloophout, reststromen van de houtindustrie of stromen die voortkomen uit het beheer van tuinen,
parken, bermen, natuur en landschap. Dierlijke mest is ook een reststroom, en wordt meegenomen in dit
actieplan voor zover het samen met andere biomassa(rest)stromen wordt verwerkt. Energieteelten zoals korte

76 Geïnspireerd op artikel 1.1.1., §2, 9° van het Ene rgiebesluit

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omloophout vallen niet onder de biomassareststromen, omdat ze doelbewust geteeld worden om er bio-
energie uit te halen.

‘Einde afval’: De einde-afvalstatus is een instrument dat tot doel heeft de materiaalkringlopen te sluiten en is
dan ook een middel om een hogere toepassing in de cascade te stimuleren. Wanneer een hogere toepassing in
de cascade niet mogelijk is op basis van ecologische en economische randvoorwaarden, kan de einde-
afvalstatus gebruikt worden om materialen uit de afvalsfeer te halen. Vlaanderen heeft ervoor geopteerd om
zowel voor bijproduct als voor einde afvalmaterialen een uniform beoordelingskader te ontwikkelen, terug te
vinden in hoofdstuk 2 van het VLAREMA. Voor specifieke materiaaltoepassingen zoals
bodemverbeteraar/meststof bevat het VLAREMA specifieke einde afvalcriteria. Voor andere toepassingen valt
men terug op het algemene beoordelingskader zoals vermeld in artikelen 36 en 37 van het Materialendecreet.

Food redistribution
77 : Food redistribution is a process whereby surplus food that might otherwise be wasted is
recovered, collected and provided to people, in particular to those in need.

Gft-afval: Gft-afval is het keuken- en tuinafval dat afkomstig is van het gescheiden ingezamelde organische
deel van het huishoudelijk afval. Het omvat composteerbaar keukenafval en etensresten en het gedeelte van
het tuinafval dat bestaat uit niet-houtig, fijn materiaal. (Vlarema 7)

Groenafval:
Groenafval is composteerbaar organisch afval (inclusief snoeihout tot 10 cm diameter) dat onder
meer vrijkomt in tuinen, plantsoenen, parken, oevers van waterlopen, wegbermen en natuurgebieden. Ook
houtkanten die wegens regulier beheer of in functie van veiligheidsoverwegingen worden gesnoeid, leveren
groenafval dat cf. Vlarema steeds groencompostering als finaliteit heeft.

Keukenafval en etensresten: Alle voedselresten, met inbegrip van afgewerkte bak- en braadolie afkomstig van
restaurants, cateringfaciliteiten en keukens, met inbegrip van centrale keukens en keukens van huishoudens.
(Vlarema 7)

Kringlooptuinieren: Tuinieren waarbij tuinresten en keukenafval als bouwstenen in de eigen tuin opnieuw
worden gebruikt. Kringlooptuinieren doe je door kringlooptechnieken toe te passen in de tuin. Je voorkomt
tuinresten of hergebruikt ze in de tuin. Voorbeelden van kringlooptechnieken zijn composteren, mulchmaaien,
compost gebruiken, snoeihout omtoveren tot vlechtwerk …

Levensmiddelenafval (Food waste): Alle levensmiddelen (Food) als omschreven in artikel 2 van de
Verordening (EG) nr. 178/2002 van het Europees Parlement en de Raad die afvalstoffen zijn geworden.
Levensmiddelen bestaan uit alle stoffen en producten, verwerkt, gedeeltelijk verwerkt of onverwerkt, die
bestemd zijn om door de mens te worden geconsumeerd of waarvan redelijkerwijs kan worden verwacht dat
zij door de mens worden geconsumeerd. (Vlarema 7)

77 EU guidelines on food donation https://ec.europa.e u/food/safety/food_waste/eu_actions/food-donation_e n

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De definitie van "levensmiddel" in Verordening (EG) nr. 178/2002 omvat voedsel als geheel, in de gehele
voedselvoorzieningsketen, van productie tot consumptie. Levensmiddelen omvatten ook niet-eetbare delen
die niet van de eetbare delen werden gescheiden toen het levensmiddel werd geproduceerd, zoals beenderen
die zijn bevestigd aan vlees dat voor menselijke consumptie is bestemd. Daarom kan levensmiddelenafval
naast delen van levensmiddelen die voor consumptie bestemd ook betrekking hebben op delen van
levensmiddelen die niet voor consumptie bestemd zijn. (C-2019-3211-F1-NL)

Niet-eetbare nevenstromen: Voedselgrondstoffen of -producten bevatten ook (voor de mens) niet-eetbare
biomassa, die vrijkomt tijdens de verwerking of de consumptie. Dat zijn de nevenstromen: niet-eetbare, met
voedsel geassocieerde organisch materialen, die geen onderdeel zijn van het voedsel.

Organisch-biologisch bedrijfsafval: Het organisch-biologisch afval van bedrijven, met inbegrip van keukenafval
en etensresten en levensmiddelenafval. (Vlarema 7)

Surplus food
19 : Super food consists of finished food products (including fresh meat, fruit and vegetables), partly
formulated products or food ingredients that may ar ise at any stage of the food production and distrib ution
chain for a variety of reasons.

Thuiskringlopen: Particulieren sluiten de kringloop thuis, dit bestaat uit thuiscomposteren, beperken
voedselverlies, houden van kippen, gebruiken van compost …

Voedselafval (= levensmiddelenafval): Op Europees vlak (in het kader van de wijzigingen van de Kaderrichtlijn
afval (KRL Afval) is voorlopig geen nieuwe definitie voorzien omdat er reeds een Europese definitie van food en
waste bestaat, vandaar wordt voor voedselafval dat onder het huidige toepassingsgebied van de KRL Afval
valt, de volgende afleiding gemaakt: “onder voedselafval wordt begrepen voedsel (zoals gedefinieerd in de
Europese algemene voedselwet; inclusief de onvermijdbare delen van voeding) dat afval geworden is
(overeenkomstig Art. 3(1) van de Kaderrichtlijn Afval: ‘is discarded’) op elk punt van de voedselketen, i.e. in de
primaire productie, voedselproductie, retail, horeca en catering, en huishoudens. Dierlijke bijproducten en
krengen worden als voedselafval beschouwd wanneer ze als afval verwerkt/verwijderd worden, (i.e. bestemd
voor verbranding, storten of voor een vergistings- of composteringsinstallatie – in geval van een andere
verwerking zijn ze momenteel uitgesloten van het toepassingsgebied van de KRL Afval (zie Art. 2.2.b en d).”

Daarnaast is er ook voedselafval dat niet onder het toepassingsgebied van de KRL Afval valt, maar wel als afval
wordt beschouwd, zoals dierlijke bijproducten die niet voldoen aan de diervoedingwetgeving. Ook beentjes
enzovoort, die een onderdeel van voedsel waren, worden als voedselafval beschouwd als ze worden
verwijderd.

Voedselconsumptie: Het consumeren van voedsel door mensen. Het voedsel heeft dan oorspronkelijke
bestemming bereikt.

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Voedselgrondstoffen en voedselproducten: Als een grondstof of product bestemd is voor menselijke
voedselconsumptie, spreken we van een voedselgrondstof of -product. Een voedselgrondstof of -product
bestaat uit een eetbare fractie (= voedsel) en een niet-eetbare fractie (= nevenstroom).

Voedselverlies 78 : Wanneer voedsel uiteindelijk niet door mensen wordt geconsumeerd, spreken we van
voedselverlies. Voedselverlies is elke reductie in het voor menselijke consumptie beschikbare voedsel dat in de
voedselketen, van oogst tot en met consumptie, plaatsvindt. Dit is de definitie die gehanteerd wordt door
Vlaanderen (ook reeds in de Ketenroadmap en in de monitor voedselverlies). Als materiaal kan het nog nuttig
gevaloriseerd worden.

Voedselverliezen + nevenstromen = voedselreststromen: Als de eetbare fractie van voedselgrondstoffen of -
producten (onder de vorm van voedselverlies) of de niet eetbare fractie van voedselgrondstoffen of -
producten (onder de vorm van nevenstromen) uit de agrovoedingsketen voor menselijke voeding verdwijnen
(lees: ze krijgen een niet-menselijke bestemming), spreken we van voedselreststromen.

9.2 AFKORTINGEN

ABS: Algemeen Boerensyndicaat
AGOP: Afdeling gebiedsontwikkeling, omgevingsplanning en -projecten van het departement Omgeving
ANB: Agentschap voor Natuur en Bos
AVBS: De sierteelt- en groenfederatie
AWV: Agentschap Wegen en Verkeer
BB: Boerenbond
BBL: Bond Beter Leefmilieu
Belgapom: Belgische aardappelhandel en –verwerking
C-MART LIFE: Circular Material Approach on Residual Waste Targets and a Litter Free Environment (Europees
LIFE-project 2020-2027, gecoördineerd door de OVAM)
DIPLA: Digitaal Platform voor Landschapsbeheer
EIT Food: European Institute of Innovation and Technology Food
Febev: Federatie van het Belgische Vlees

78 Synthesedocument ‘Voedselverlies in Vlaanderen’ (I nterdepartementale Werkgroep Voedselverlies, 2012) , Ketenroadmap Voedselverlies 2015-2020, monitor
voedselverlies

page 118 of 157
Fedustria: Federatie van de textiel-, hout- en meubelindustrie
Fenavian: Federatie van de vleeswarenproducenten
Fevia Vlaanderen: Federatie Voedingsindustrie
GLB: Gemeenschappelijk Landbouwbeleid
GOP: departement Gebiedsontwikkeling, omgevingsplanning en -projecten van de Vlaamse overheid
HFDV: Hoofden Facilitaire Diensten Verzorgingsinstellingen
ILVO: Instituut voor Landbouw-, Visserij- en Voedingsonderzoek
Interafval:
samenwerkingsverband van de Vereniging van Vlaamse Steden en Gemeenten (VVSG), alle Vlaamse
afvalintercommunales en andere lokale besturen die instaan voor lokaal afvalbeleid
Landsbond beenhouwers: Koninklijke Landsbond der Beenhouwers, Spekslagers en Traiteurs van België
ODE: Organisatie Duurzame Energie
PCA: Proefcentrum voor de Aardappelteelt
UBC: Unie voor Belgische Catering
UNIZO: Unie van Zelfstandige Ondernemers
VBC: Vlaamse Confederatie Bouw
VBT: Verbond van Belgische Tuinbouwveilingen
VCM: Vlaams Coördinatiecentrum Mestverwerking
VEKA: Vlaams Energie- en Klimaatagentschap
Vegebe: Federatie van de Belgische groenteverwerking en de handel in industriegroenten
Velt: Vereniging voor Ecologisch Leven en Tuinieren
VGRB: Vereniging van Gemeenschapsrestaurateurs België
VIL: innovatieplatform voor de logistieke sector in Vlaanderen
VITO: Vlaamse Instelling voor Technologisch Onderzoek
Vlaco: Vlaamse
organisatie ter ondersteuning van de biologische kringloop (o.m. thuiskringlopen, composteer-
en vergistingssector, kwaliteitsbewaking en afzet van compost en digestaat)
VLM: Vlaamse Landmaatschappij
VMM: Vlaamse Milieumaatschappij
VVP: Vereniging van de Vlaamse Provincies

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VVSG: Vereniging van Vlaamse Steden en Gemeenten
WVG: Departement Welzijn, Volksgezondheid en Gezin van de Vlaamse overheid

9.3 BASISDATA MILIEU-IMPACTBEREKENING
In onderstaande tabel worden per biomassa(rest)stroom de verschillende bestemmingen weergegeven samen
met de hoeveelheden die naar de verschillende bestemmingen gaan in het referentiejaar (2015 of 2017/2018)
en in 2025. De CO 2-emissiefactoren, uitgedrukt in CO 2-equivalenten worden eveneens gerapporteerd in
onderstaande tabel. Om de milieu-impact te bepalen van een scenario werden immers voor de verschillende
bestemmingen de hoeveelheden vermenigvuldigd met de bijhorende CO 2-emissiefactor.

De hoeveelheden werden aan toepassingen toegewezen op basis van voorziene tendensen, zoals in het VEKP
2021-2030 en concrete doelstellingen naar materiaalrecyclage (bv. vezelgebruik). Voor sommige toepassingen
werd de tendens vastgesteld in functie van toenemende/dalende afzet.

De CO
2-emissiefactor houdt per bestemming rekening met directe emissies, indirecte emissies en vermeden
emissies. De directe emissies zijn emissies die rechtstreeks voortkomen uit behandeling van de
biomassa(rest)stroom. Indirecte emissies doen zich verder in de keten voor, bijvoorbeeld tijdens het
opwekken van elektriciteit die mogelijk ingezet wordt voor de afvalbehandeling. Voor de vermeden emissies
werd er een inschatting gemaakt van het specifiek vermeden proces en de bijhorende emissies. De CO 2-
emissiefactoren voor de verschillende verwerkingstoepassingen werden bepaald op basis van beschikbare
gegevens uit relevante literatuur of rekentools. Indien nodig werden de in de literatuur beschikbare factoren
omgerekend zodat ze in lijn zijn met het doel en de reikwijdte van deze impactanalyse.

De factoren dienen gezien te worden als een inschatting. Er werd namelijk geen uitgebreide
levenscyclusanalyse gedaan voor elk van de verwerkingsopties. In onderstaande tabel wordt de totale CO
2-
emissiefactor alsook de fossiele en de biogene CO 2-emissiefactor ter beschikking gesteld.

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9.4 DOORKIJK 2050
9.4.1 Visie 2050 van de Vlaamse regering
In deze visie heeft de Vlaamse economie heeft zich ontwikkeld tot een volwaardige bio-economie die
biomassa duurzaam produceert en biomassa(rest)stromen (her)gebruikt voor voeding, veevoeder, materialen,
producten en energie.

Een duurzame bio-economie moet aandacht hebben voor de start van de levenscyclus door te bewaken dat de
biomassa een duurzame oorsprong heeft en het gebruik duurzaam is en het cascadeprincipe volgt . Idealiter
worden in de bio-economie ook de kringlopen verderop in de levenscyclus gesloten. Dat kan onder meer door
in te zetten op bio-afbreekbaarheid van bijvoorbeeld oplosmiddelen, hergebruik van biogebaseerde
materialen zoals bioplastics en de opvang en hergebruik van afvalgassen uit de verbranding van fossiele
brandstoffen en biobrandstoffen, die we via fermentatie opnieuw als grondstof kunnen gebruiken.

De bio-economie en circulaire economie versterken elkaar . Innovaties nemen de laatste jaren een hoge
vlucht, niet in het minst in Vlaanderen. Onze regio is momenteel een voorloper op beide fronten en verdere
ontwikkelingen op dit vlak kunnen van Vlaanderen in deze duurzame omwentelingen een wereldspeler van
formaat maken.

In 2.5.2 van de visie wordt vermeld dat biologische materialen, ontworpen om veilig terug te stromen naar de
biosfeer, worden onderscheiden van technische (niet-biologische) materialen, waar product(onderdelen) zo
zijn ontworpen en vermarkt dat ze op een kwalitatief hoogwaardig niveau opnieuw gebruikt kunnen worden.

De bio-economie is ook één van de slimme specialisatiestrategieën in de circulaire economie De strategie
moet leiden tot een bio-economie met pilootinfrastructuur en bioraffinaderijen die naast de productie van
voeding en veevoeder, biomassa omzetten in chemicaliën en materialen. Er zijn mogelijkheden voor het
gebruik van nevenstromen van biomassa, de productie van aromaten op basis van biomassa en het omzetten
van synthetische gassen in brandstof en andere chemische stoffen (syngasfermentatie).

Het verzekeren van de duurzaamheid van geïmporteerde en lokaal geproduceerde biomassa vormt een
specifieke uitdaging in de omslag naar een circulaire economie. Idealiter maakt Vlaanderen zo veel mogelijk
gebruik van de nevenstromen van biomassa.

De rol van biomassa in het hernieuwbare energielandschap in 2050 wordt verduidelijkt in de visie. Bij de inzet
van (lokale) biomassa voor hernieuwbare energieproductie wordt gestreefd naar een maatschappelijk
optimale inzet van biomassastromen, rekening houdend met het cascadebeginsel uit het materialenbeleid
((her)gebruik voor voeding, veevoeder, materialen, producten en energie) en met de wenselijkheid van een