Insights from the URGE network: thematic report

Figure 1: Historically preserved tobacco warehouses in Kavala (http://efimeridakavala.gr)

Why does this gap affect local authorities?

The role of local authorities as enablers of circular economy enhancement is well acknowledged by the OECD Report (2020). A powerful tool in the hands of local authorities in order to enhance circular economy has a name and a surname. It is called ‘’public procurements’’.  But, the absence of clear guidelines and technical standards at national level, poses significant hurdles on local authorities when it comes to the design of tenders including circular economy criteria. Such criteria could be (significant and measurable) utilization of secondary materials in public constructions replacing virgin materials. The Municipality of Kavala is one of the partners of the URGE project and since the very early start of the project, they have developed a very ambitious and clear roadmap to deal with this gap and raise the local need, to the national level.

Building upon a strong legacy

The Municipality of Kavala has been partner in the ‘’Making Spend Matter’’ URBACT Transfer Network, thus the Municipality had already good knowledge of the power and impact of public procurements and an experience of working in a participatory and integrated approach with players from different levels of governance. The URGE Network gave Kavala the opportunity to explore the topic of public procurements from another point of view, through the lens of the environmental and economic dimensions of sustainability. Thus, in Kavala, they have decided to develop a small-scale activity to investigate the inclusion of explicit terms and criteria in public (municipal) procurements, targeting construction works. Criteria refer specifically to the utilisation of recycled/recovered C&D materials in public works, in replacement of virgin materials. The small-scale activity initiated a study and the ultimate aim is  to push the boundaries of the current legislation and raise the challenges to the national level.

Figure 2: View over Kavala (Oystein Leonardsen)

The ‘’research’’ questions

Defining clear, concise, and focused research questions is an essential step in getting started with a project. In the case of Kavala, the research questions that would be addressed through the small-scale activity implementation, were developed as follows:

• What are the legal and/or institutional provisions hindering the utilization of C&D recycled materials in public procurements for construction projects?
• Under which prerequisites can quota for recycled C&D materials’ utilization be introduced in public (municipal) procurements for construction projects?
• How can green procurements lead to increased recycled C&D material utilization?

The relevance to the Integrated Action Plan (IAP)

Small-scale activities need to be in line with the actions that are included in the IAP, to provide some first insights about its feasibility, impact, potential drawbacks, so that risks are minimised during implementation. In this sense, the small-scale activity that has been designed in the case of Kavala is in line with the following aims of Kavala’s IAP:

• Preparation of the framework for boosting the market of secondary materials and resources through procurements
• Knowledge enhancement, communication for awareness-raising, sensibilization, training and education

The small-scale activity

Initially, the feasibility of the proposed activity was discussed and validated with relevant members of the ULG, mainly C&D waste management companies. The case of construction or reconstruction of a rural road project was deemed as feasible. C&D waste management companies provided available secondary materials. Technical specifications for the tender document were initially drafted by the ULG and were communicated/proposed to a Ministerial Committee, consisting of four different Ministry representatives, responsible for drafting specifications for integrating C&D waste materials in public works. Taking into account all the discussions at the different levels, the Department of Technical Services of the Municipality will produce a final tendering document that will include the requirement of integrating recovered C&D waste in a municipal public infrastructure project, namely a rural road construction/ reconstruction, either as a sub-base course or as a 10 cm thick “improvement layer” before laying out the sub-base course. At this point, the discussions are still on going, undoubtably, although is not the best upcycling example, it is a first very important step, in order to open the dialogue for circular criteria in procurements, which serves well the role of a local authority in boosting circularity.

Figure 3 and 4: Secondary raw materials (Eleni Feleki)

Key players, on board since the early beginning

In Kavala, the ULG is consisted of organizations and individuals with experience and a dynamic presence in the construction/ deconstruction sector. The ULG's goals were to allow participation, facilitate knowledge exchange and co-design the tendering document. Through ULG’s operation, the plan to implement the small-scale activity was agreed, the inputs needed were identified, the technical specifications of the tender were developed, and the tender has been finally prepared and brought into the attention of the Ministerial Committee for discussion. The entities that compose the ULG of Kavala reflect the integrated approach and address several governance levels, sectors, academia and citizens. They are depicted in the scheme below.

Figure 5: Local stakeholders in Kavala

Lessons learnt: the role of the market

Participation of private companies from the early stages of the project proved invaluable, as they provided the project team with expertise gained from their active involvement in numerous public and private construction projects. In addition, they indicated fields of improvement in the tendering regime and provided technical knowledge on materials that can have alternative uses and which otherwise would end up as informal backfilling materials.

Limitations and drawbacks

One of the main limitations that the project-team had to overcome was the lack of relevant legislative provisions and the minimal practical experience in similar projects at the national level. However, the participation of private waste management companies in the ULG in meetings from the early stages of the project proved to be very enlightening. Another limitation is the fact that the reuse of recovered C&D waste products in various construction projects is more expensive than simply using "virgin" materials. Thus, the process might look financially unattractive compared to “traditional” construction. It is important to accept and communicate, on a fair basis, that a rise in the construction project budget may be expected, at least before a streamlined process is installed.

Circular Granada

Construction in Granada -even though being one of the most important economic sectors of the city- is still mainly following the traditional linear model.  Most of small and midscale works are often carried out by “old school” family companies, with no R&D Department. while training programmes on circular economy are missing. Professionals themselves, are also in need of circular economy training, since there is a gap in the education on this topic, both in Universities and in professional associations. Therefore, as a starting point for implementing circular economy criteria, it was necessary to focus on awareness and training of the players in the sector, in order to make the first solid steps in the green transition staircase of the city.

The URGE DemoDay: The first meeting ever held in Granada related to circular economy in construction

During the lifetime of the URGE project, several good practices were detected among all actors involved in local constructions. The idea of showcasing them in a way which could also serve as a small-scale activity, gave to birth the “URGE DemoDay”: the first meeting ever held in Granada related to circular economy in construction.

Figure 6, 7 and 8: URGE DemoDay in Granada (City of Granada)

The results

The URGE DemoDay proved to be extremely motivating for the ULG members. In order to keep the momentum, the City decided to organise DemoDays in Granada more systematically. Thus, as a result of this small-scale activity, and according to all feedback, a firm commitment is born to hold thematic meetings and discussion panels twice a year in Granada. These are now included as actions of the IAP of Granada. The URGE DemoDay helped also to engage politicians into more effective actions to boost circularity in Granada.  Their deeper engagement in the project was also achieved thanks to their recent participation to the political event and sit visit that was hosted by Copenhagen in the frame of URGE. In the frame of the URGE DemoDay, decisions were taken to enlarge the eco-point and reform the municipal waste plant.

Start small to think big later: The long-lasting effect

The small-scale activity gave room for inspiring discussions and as the relevant stakeholders were present, a clear opportunity is born for the city. Therefore, the organization of the small-scale activity, backed by transnational exchanges throughout the lifetime of URGE, have enriched and influenced Granada’s IAP. After the opportunity of testing the organization and impact of the meeting, it’s been possible to pulse local resources and to think about the continuity of the ULG by replicating periodically an improved version of the event on a yearly basis.

Testimonies by small-scale activities’ key persons

 “It was major assistance and groundbreaking experience of us taking part in URGE project. In particular, the methodology of the URBACT programme helped us to see circular economy in the construction sector in an integrated approach, attract and engage stakeholders, dedicated to the cause and provided us with essential tools for the development of the Integrated action plan. For the city of Kavala, URGE has been an amazing source of knowledge and know-how for the transition to the circular economy. We shared our anxieties and experience in tested solutions presented by our partner cities and got professional guidance from our Lead and ad hoc experts resulting in a consistent and feasible integrated action plan. Implementation of the small-scale activity gave us and was the first attempt at a national level to include recycled material in a public tender—a small step, significant progress, however. In a country, we lack a legislative framework in the field. We are experiencing more obstacles than expected and the market is not ready to support the change yet. Thus, we tried it out and elaborated an action plan towards mainstreaming circularity. We consider ourselves lucky to have our stakeholders engaged and our  policymakers supportive!” Io Chatzivaryti, Senior Advisor to the Mayor in EU projects, Municipality of Kavala, URBACT Local Group Coordinator

 “URBACT methodology has been crucial for us to detect and prioritize our needs, and to get the best inspiration from the exchanges with other cities.  Furthermore, getting all construction agents together as stakeholders is the most solid foundation we could achieve to set circular economy criteria in the sector, through our Integrated Action Plan. Our small-scale activity (first ever meeting in our city related to CE in construction) gave us the opportunity to check and foresee the kind of actions that we can hold in future to raise awareness and training, and to strengthen the bonds between all stakeholders: government, professionals, University and companies.” Ángel Luis Benito Pérez, Architect of Municipality of Granada and URBACT Local Group Coordinator

Further resources concerning the cases of Kavala and Granada

Granada: City video Granada: Circular building cities - YouTube

Kavala: City video Kavala: Circular building cities - YouTube

Acknowledgments

This article has been produced in the frame of the URGE APN, financed by the URBACT Programme. Special acknowledgments for the production of this article deserve to Io Chatzivaryti and Ángel Luis Benito Pérez.