Survey: Municipalities’ attitude towards construction plastics procurement

Out of the plastics used in Finland, 15–20% is used in construction. Plastic waste is generated in the construction phase, a large part of which is plastic film that is well suited for recycling. In the Closed Plastic Circle – from Pilots into Practice project, the potential of construction plastics procurement in increasing the recycling rate of plastics was identified, and as a result we are now working on concrete procurement criteria to help those working with construction procurement.

In order to ensure that the completed criteria and related guidelines correspond to the best possible extent to the needs of municipalities, we asked people involved in the construction procurements of municipalities to respond to our survey. The aim of the survey was to determine the current situation regarding the recycling of plastics in municipal construction procurements and to understand what requirements municipalities may have to promote the recycling of plastics. The survey focused mainly on construction film plastics.

The survey respondents included people working at the managerial level and in an expert role. We received ten responses, and almost all of the respondents were quite experienced and had been involved in more than ten construction-related procurements. You can read a summary of the survey results below or take a look at a more detailed report at the end of this article.

According to all respondents, the promotion of the circular economy in construction procurement is considered very or fairly important in their municipality. Each respondent also considered the matter very or fairly important personally. When asked in more detail about the recycling of plastic film, the responses become more divided. Half said that the promotion of plastic film recycling in construction procurement is considered very or fairly important in their municipality. One third of the respondents were unable to state their municipality’s stand on the recycling of plastic film, and the rest considered it fairly insignificant.

When asked what kind of support municipalities would need in order to promote recycling through construction procurement, standardised recycling requirements for construction materials were indicated as the most important means. The second most popular option was ready-made procurement criteria to be used in invitations to tender. Many also indicated the importance of education, information about recycling and political support to promote recycling. In the same connection, it is highlighted that local operators are needed to take care of the different stages of material recycling.

According to the respondents, it would be easier to adopt procurement criteria if support and instructions were available to procurers, as well as information on how products containing recycled materials meet product quality requirements. The biggest obstacles to the adoption of ready-made procurement criteria are perceived as a lack of knowledge and know-how, as well as possible additional costs. Lack of resources is also blamed to some extent and it is questioned whether the procurement criteria are, as a rule, a meaningful means of promoting the circular economy in municipal construction procurements. According to the responses, it may be challenging for a municipality to set direct criteria for plastic procurements, if the object of the municipal procurement is a contractor, who in turn makes the actual procurements containing plastics. The importance of the overall view is also highlighted: before setting, for example, a separate collection obligation, there must be operators in the area who are able to recycle plastic film waste into recycled material.

The responses show that the development work carried out previously to promote the recycling of construction plastics has not gained much importance among professionals. Many of the respondents were not familiar with, for example, the Plastics Roadmap for Finland(external link, opens in a new window), the green deal for construction plastics(external link, opens in a new window) or Motiva’s online courses(external link, opens in a new window) on construction plastics. Many were also unable to share their municipality’s actions to develop plastic film recycling.

The promotion of the circular economy in construction procurements is generally considered important, but the promotion of plastic recycling does not necessarily show in practical actions just yet. There is a demand for clear procurement guidelines and general training in the circular economy. The procurement criteria for construction plastics are also seen as a viable solution, although not entirely without reservations – attention must be kept to the overall view, that is, supporting the increase in the recycling rate of the entire construction project.

The survey results are very useful for our work in the Closed Plastic Circle project. The survey responses will be taken into account in the procurement criteria and procurement guidelines to be created in the project. We also strive to find solutions and good examples of how to ensure the use of collected plastics as recycled material in a market dialogue with operators in the plastics and construction sector. Future training sessions and project communications will focus on the issues raised in the survey and aim to provide answers to them.

The survey results help to promote the green deal commitment for construction plastics in the municipal sector. The survey improved understanding of the needs of procurers, and the results can also be used more extensively to promote the circular economy in construction.

In addition to the recycling of plastic film, it is essential to increase the share of recycled plastic in construction products. The survey and discussions with those in charge of municipal constructions often raise questions about the quality of recycled plastic compared to products made entirely of virgin plastic. The most important thing in construction is durability in order to achieve a long service life and the safety of materials from the point of view of the environment and residents, such as the impact on indoor air.

Pipes make up a large part of the plastic products used in infrastructure and building construction. The City of Espoo is organising an event on construction pipes and recycled plastics on 10 April 2024(external link, opens in a new window) in cooperation with the Helsinki Circular Economy Cluster, the Helsinki-Uusimaa Circular Valley, the 4Recycling ecosystem of the PlastLIFE project and the Finnish Plastics Industries Federation. The event aims to answer questions received from the field and to provide up-to-date information on the use of recycled plastic in pipes.