Scottish Borders Council Integrated Waste Management ... · The Strategic Development Planning...

Appendix I (Strategy) Item No. 16

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Scottish Borders Council

Integrated Waste Management Strategy

2013 - 2025

November 2013


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Contents

Contents ...........................................................................................................................................2Glossary of Terms & Acronyms........................................................................................................31 Summary ..................................................................................................................................62 Introduction ...........................................................................................................................103 Strategic Framework and Drivers for Change........................................................................11

3.1 EU Context .....................................................................................................................113.2 National Context ............................................................................................................123.3 Land-Use Planning Context ............................................................................................153.4 Financial Context............................................................................................................17

4 Waste Composition and Arisings ...........................................................................................194.1 Current Municipal Waste Arisings .................................................................................194.2 Projected Municipal Waste Arisings ..............................................................................20

5 Scottish Borders Area Profile .................................................................................................276 Waste Prevention...................................................................................................................29

6.1 National Context ............................................................................................................296.2 Local Activities................................................................................................................31

7 Recycling and Composting .....................................................................................................347.1 Targets & Legislation......................................................................................................347.2 Household Recycling and Composting...........................................................................367.3 Commercial Recycling and Composting.........................................................................407.4 Community Recycling Centres .......................................................................................417.5 Recycling Points .............................................................................................................447.5 Other key Recyclables ....................................................................................................447.6 Processing of Recyclates ................................................................................................477.7 Waste Treatment Contract (see section 8.2 for more detail) .......................................48

8 Residual Waste Management................................................................................................498.1 Residual Waste Collections ............................................................................................498.2 Residual Waste Treatment and Disposal .......................................................................50

9 Zero Waste Aware..................................................................................................................5610 Non Municipal Waste.........................................................................................................58Appendix 1 - Scottish Borders Council – Integrated Waste Management Strategy Action Plan ..61Appendix 2 - Scottish Borders Council - Corporate Plan Priorities ................................................64Appendix 3 – “Ambitious for the Borders 2012” – We will work to improve life in the ScottishBorders by: .....................................................................................................................................65Appendix 4 – Illustrative Landfill Allowance Scheme Biodegradable Municipal Waste Allocations(2010/11 to 2019/20).....................................................................................................................66Appendix 5: Business Transformation Project – Agreed Savings ..................................................67Appendix 6 – SEPA – Household Waste – Waste Data Flow Data 2012 Calendar Year ................68Appendix 7 – Compositional Analysis – 2012 vs. 2013..................................................................69References......................................................................................................................................70


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Glossary of Terms & Acronyms

ATC Advanced ThermalConversion

An efficient, modern way of producing energy from waste.

BMW BiodegradableMunicipal Waste

Biodegradable Municipal Waste (BMW) is the fraction ofMunicipal Waste that will degrade within a landfill, givingrise to landfill gas emissions, primarily methane. It includes,amongst other materials, food waste, green waste, paperand cardboard.

Commercial Waste Waste arising from premises that are used wholly or mainlyfor trade, business, sport, recreation or entertainment,excluding household and industrial waste (as defined inEnvironmental Protection Act 1990, section 75).

CHP Combined Heat andPower

A system which utilises waste heat from electricityproduction to provide hot water and space heating forneighbouring buildings.

CRC Community RecyclingCentre

A waste facility where householders can deposit and recyclehousehold waste.

EfW Energy from Waste The process of producing electricity or heat from waste.

General Waste See Residual Waste.

HHW Household Waste Waste from domestic properties including waste fromcaravans, residential homes and premises forming part of aneducational establishment or part of a hospital or nursinghome.

Industrial Waste Waste from a factory (within the meaning of the FactoriesAct 1961) or from any premises used for, or in connectionwith:

provision of public transport

public supply of gas, water, electricity or sewerageservices

provision to the public of postal or communicationservices

IVC In-Vessel Composting The term ‘in-vessel composting’ is used to cover a widerange of composting systems all of which feature theenclosed composting of waste.

IWMF Integrated WasteManagement Facility

The waste treatment facility being delivered as part ofScottish Borders Council long term waste treatmentcontract with New Earth Solutions. The facility will treat theCouncil residual waste through a mechanical sorting processand Advanced Thermal Conversion (ATC).

LAS Landfill AllowanceScheme

The system by which Scotland meets its proportional targetsfor reducing the quantity of biodegradable municipal wastesent to landfill.

Leachate The liquid that drains or 'leaches' from a landfill.

LDP Local Development The Local Development Plan set out the Local Planning


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Plan Authorities policies on development and land use withintheir area.

MBT Mechanical BiologicalTreatment

A type of waste processing facility that combines a sortingfacility with a form of biological treatment such ascomposting or anaerobic digestion.

MRF Materials RecoveryFacility

A facility to process wastes for the purpose of recoveringuseful materials using a variety of processes to separate outdifferent materials, ranging from manual sorting toadvanced mechanical separation techniques.

MW Municipal Waste Waste from households, as well as commercial andindustrial waste which, because of its nature andcomposition, is similar to waste from households.

MSW Municipal SolidWaste

Municipal Solid Waste (MSW) is Local Authority CollectedMunicipal Waste (LACMW) plus commercial and industrialwaste similar to that generated by households which iscollected by commercial operators (i.e. not by or on behalfof a local authority). This is the definition which will be usedby Scotland and the UK for reporting against EU landfilldiversion targets. It includes all waste types included underEuropean Waste Catalogue Code 20 and some wastes underCodes 15 and 19.

NWP National Waste Plan(Scotland)

Published by SEPA in 2003. The framework for delivering theNational Waste Strategy.

OBC Outline Business Case A high level business case establishing the need for theproject and its outline parameters and scope, includingcosts.

PPC Pollution Preventionand Control

A system set up in the UK to implement the IntegratedPollution Prevention and Control Directive (96/61/EC) toprevent and control pollution from certain types ofbusiness. The PPC regime is replacing the IntegratedPollution Control regime. In Scotland, both regimes areregulated by SEPA.

Residual Waste Waste that remains following all practicable efforts toextract recyclable and compostable material from the wastestream.

RCV Refuse CollectionVehicle

WDF Waste Derived Fuel Waste that has been processed to create a fuel.

SEPA Scottish EnvironmentProtection Agency

Scotland’s environmental regulator.

SESPlan South East ScotlandStrategicDevelopment Plan

The Strategic Development Planning Authority for theEdinburgh and South East Scotland. The key role of theSDPA is to prepare and maintain an up to date StrategicDevelopment Plan for the area.

SDP StrategicDevelopment Plan

The SDP replaces the existing Edinburgh and LothiansStructure Plan, Fife Structure Plan and Scottish Borders


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Structure Plan. The SDP outlines a vision for the long termdevelopment of the south east of Scotland area.

SWF Strategic Waste Fund The Scottish Executives fund for delivering the NationalWaste Plan (see NWP)

WEEE Waste Electrical andElectronic Equipment

Electrical and Electronic items such as; Fridges, freezers,washing machines, toasters, kettles, televesions, flourescentlight bulbs etc.

WFD Waste FrameworkDirective

The Waste Framework Directive is the primary Europeanlegislation for the management of waste.

WTS Waste TransferStation

A site to which waste is delivered for sorting andcompacting prior totransfer to another place for recycling, treatment or disposal

ZWF Zero Waste Fund The Scottish Governments fund for delivering the ZeroWaste Plan.

ZWP Zero Waste Plan Published by SEPA in 2010. The Scottish Governmentsframework for delivering their Zero Waste Vision.

ZWS Zero Waste Scotland The Scottish Governments Zero Waste Plan delivery body.

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1 Summary

Scottish Borders Council’s Integrated Waste Management Strategy outlines clear strategicdirection for municipal waste management in the Scottish Borders taking account of Europeanand National Policy including Scotland’s Zero Waste Plan. The Strategy maps out the Council’sactions and position with regards to:

achieving landfill diversion targets;

achieving landfill allowance scheme targets (if re-instated);

achieving European and national recycling and composting rates;

complying with current and new waste regulations;

delivering municipal waste services;

controlling waste arisings and waste growth;

developing potential partnership arrangements;

determining future resource implications for waste management in the Scottish Borders

The strategy is linked to and will contribute to Scottish Border Council’s Corporate Plan (seeappendix 2), the Single Outcome Agreement and “Ambitious for the Borders 2012” (seeappendix 3). The Strategy will ensure services for municipal waste management are ‘fit forpurpose’ and financially sustainable in the long term.

Drivers for Change

In 2010 the Scottish Government issued the Zero Waste Plan which set the followingaspirational targets for household waste:

50% recycling, composting and preparing for reuse by 2013;


70% recycling, composting and preparing for reuse by 2025.

In addition, it set the following targets for all waste (household, commercial and industrial)collected in Scotland:


no more than 5% being landfilled by 2025.

The Zero Waste Plan outlined that a package of regulatory measures would be required in orderto implement a number of its actions. This culminated in the introduction of The Waste(Scotland) Regulations 2012 which came into force on the 17th May 2012.

Specific measures introduced by the Waste (Scotland) Regulations 2012 include:

A requirement on local authorities to provide householders with:

o A separate collection service for dry recyclables (paper, card, plastic metal andglass) from January 2014.

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o A separate collection service for food waste (apart from rural areas) from January2016.

A requirement on Local Authorities to take steps from 1st January 2014 to promoteseparate collection and recycling. This includes making arrangements for the provision ofa food waste receptacle.

A requirement for businesses to present:o Dry recyclables (metals, plastic, paper, card and glass) separately for collection

from 1st January 2014o Food waste of more than 50kg/week separately for collection from 1st January

2014, with those producing less than 50kg/week exempt until the end of 2015.

A ban on materials collected separately for recycling going to landfill or incineration from1st January 2014.

A requirement to remove dry recyclables (plastics and metals) from mixed waste prior toincineration (from July 2012).

A ban on biodegradable municipal waste going to landfill from 1st January 2021.

It is clear that if Scottish Borders Council is to achieve the requirements of the Zero Waste Planand comply with Waste (Scotland) Regulations 2012 a number of significant changes will needto be made to the Waste Service it provides. These changes are to be delivered during a periodof austerity when Scottish Borders Council is facing a budget deficit of £28 million between2013/14 and 2017/18.

The actions outlined within the Integrated Waste Management Strategy have been prioritisedas it is not possible to comply with the requirements of the Waste (Scotland) Regulations 2012and achieve all of the Zero Waste Plan targets with the funding that is currently available.

Meeting the Challenge

Waste Prevention

The financial and environmental benefits of preventing waste and source and the efficient useof resources is a key priority for the Council. We will aim to lead by example, ensuring “our ownhouse is in order”, in addition to supporting households and businesses in the Borders.

We will monitor waste arisings and undertake waste analysis on an annual basis, taking intoaccount factors such as forecasted population growth, and plan appropriate actions to maintainwaste prevention awareness and activity. The Council will support the development andimplementation of waste prevention actions included in Scotland’s Zero Waste Plan at a locallevel, subject to the availability of funding.

The Council already works in partnership with a number of local waste prevention organisationsacross the Borders and supports key waste prevention projects. We will continue to supportthese organisations and encourage partnership working to develop new activities in this area.The role of the community sector and social enterprises in developing waste preventionprojects is recognised as being vital.

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Recycling and Composting

Scottish Borders Council is committed to delivering the following planned projects:

Delivery of a New Integrated Waste Treatment Facility in 2015

Removal of the kerbside garden waste service in 2014

Introduction of a new food waste collection service in 2015

Figure 1 outlines the impact of these planned projects on the Council’s Recycling andComposting Performance. It can be seen that the Council’s recycling performance will onlymarginally increase from 41.1% in 2012/13 to 41.8% in 2015/16. As a result the Council is verylikely to fall significantly short of the Scottish Government’s aspirational recycling andcomposting target of 70% by 2025.

Figure 1: Projected Recycling and Composting Rates (with programmed projects)

0%

5%

10%

15%

20%

25%

30%

35%

40%

45%

50%

2012

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2013

-14

2014

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2015

-16

2016

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2017

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2018

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2019

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2020

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Year

The following key actions are to be delivered to ensure that the Council’s Recycling andComposting Services are ‘fit for purpose’ and financially sustainable in the long term:

Continue to expand the range of materials accepted via the Kerbside RecyclingCollection Service.

Continue to target intervention work to increase participation rates in areas of low/poorperformance.

Continue to monitor Kerbside Recycling Collection contamination levels to informservice delivery and communication campaigns.

Commence delivery of a food waste collection service, in urban areas only (i.e. Hawick,Jedburgh, Galashiels, Tweedbank, Peebles and Selkirk), from April 2015.

Develop a Housing Association Guidance Note that clearly defines the Council’s roles andresponsibilities with regards to collection of kerbside recycling and residual waste, withthe objective of improving presentation and participation levels.

Continue to develop and upgrade the Council’s Community Recycling Centres.

Aim to achieve a recycling rate of 70% at Community Recycling Centres by 2015.

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Deliver the Council’s re-use pilot project at Selkirk Community Recycling Centre.

Undertake a review of the Council’s Community Recycling Centre provision to ensure it is‘fit for purpose’ and financially sustainable in the long term.

Seek to expand the number of Recycling Points in the Scottish Borders.

Expand the number of Glass Recycling Points in the Scottish Borders

Undertake a review of the textile service in order to determine the optimum solution.

Construct a wood bay at Hawick Waste Transfer Station.

Secure contracts or agreements for processing/treating and sale of materials collectedby the Council through the delivery of the ‘Procurement Programme’.

Maintain and deliver a communication programme that supports the Council’s wasteand recycling service.

It is anticipated these additional actions will enable the Council to improve its recyclingperformance and achieve the EU Waste Framework Directive recycling target (i.e. 50% by 2020).However it is highly unlikely they will enable the Council to achieve the aspirational ScottishGovernment’s recycling and composting targets (i.e. 60% by 2020 and 70% by 2025). This is anunavoidable outcome of the need to balance the delivery of a Waste Service that is ‘fit forpurpose’, financially sustainable in the long term, meets statutory recycling targets versusachieving aspirational recycling targets.

Residual Waste Management

In April 2011 Scottish Borders Council signed a 24 year contract with New Earth Solutions towork in partnership to deliver a waste treatment solution at Easter Langlee, Galashiels. Thefacility will divert waste away from landfill and provide “second chance” recycling and recoveryfor general waste. It is anticipated that the new Integrated Waste Management Facility willcommence operations in 2015.

It is anticipated that the new Integrated Waste Management Facility will assist the Council:

Achieve the Council’s projected Landfill Allowance Scheme allocation up to 2020/21. Asa result the Council is unlikely to face any financial penalties should the ScottishGovernment decide to re-instate the Landfill Allowance Scheme.

Achieve a Municipal Solid Waste to landfill rate of 14.7% in 2015/16, which is well on theway to achieving the Scottish Government’s target of only 5% to landfill by 2025.

Minimise costs associated with the landfill tax escalator and increasing landfilloperational costs.

Comply with the Waste (Scotland) Regulation 2012 requirements to:o Remove dry recyclables (plastics and metals) from mixed waste prior to

incineration (from July 2012).o Ban biodegradable municipal waste going to landfill from 1st January 2021

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2 Introduction

The purpose of this Integrated Waste Management Strategy is to provide clear strategicdirection for municipal waste management in the Scottish Borders through to 2025. TheStrategy will be used to guide future decision-making by Scottish Borders Council.

This Strategy highlights current arrangements for waste management within the ScottishBorders and sets out the integrated actions required for the reduction, reuse, recycling,recovery and disposal of municipal waste, which will be required for Scottish Border Council tomove towards the Scottish Government vision for zero waste.

The Integrated Waste Management Strategy aims to outline a way forward for Scottish BordersCouncil in terms of:

achieving landfill diversion targets;

achieving landfill allowance scheme targets (if re-instated);

achieving European and national recycling and composting rates;

complying with current and new waste regulations;

delivering municipal waste services

initiatives to control waste arisings and waste growth;

potential partnership arrangements;

determining future resource implications for waste management in the Scottish Borders.

The involvement and support of Scottish Government, national delivery bodies, the communitysector, businesses and householders will be required in order to deliver this strategy.

The strategy is linked to and will contribute to Scottish Border Council’s Corporate Plan (seeappendix 2), the Single Outcome Agreement and “Ambitious for the Borders 2012” (seeappendix 3). The Strategy will ensure services for municipal waste management are ‘fit forpurpose’ and financially sustainable in the long term.

The focus of the Plan is on municipal waste management (i.e. waste collected by the Council).This reflects priorities and targets set for local authorities by the Scottish Government. Howeverthe Plan also considers the management of non-municipal wastes in the Scottish Borders, toreflect the wider role Scottish Borders plays with regards to waste management and thebroader targets set by the Scottish Government’s Zero Waste Plan.

Actions to deliver the Integrated Waste Management Strategy are highlighted throughoutthe Strategy document. Theses actions form an Action Plan which is presented in Appendix 1.

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3 Strategic Framework and Drivers for Change

3.1 EU Context

Over the last decade we have seen significant change in municipal waste practices in Scotland.These changes are largely the result radical policy and regulatory change at a European levelincluding the introduction of a number of EU Directives aimed at harmonising waste disposalpolicies throughout Europe.

The Waste Framework Directive (Directive 2006/12/EC on Waste)

The Waste Framework Directive requires Member States of the EU to establish both a networkof disposal facilities and competent authorities with responsibility for issuing wastemanagement authorisations and licenses. In December 2008, the revised WFD (Directive2008/98/EC) came into force, amending some articles of the previous WFD. The revised WFDintroduces the first EU wide recycling targets. By 2020 Member States must reuse or recycle 50per cent of household waste (the UK Government is interpreting this to include composting oforganic wastes) and reuse, recycle or recover 70 per cent of non-hazardous construction anddemolition waste.

The Landfill Directive (Directive 1999/31/EC on the Landfill of Waste)

This Directive also requires a progressive reduction in the landfilling of biodegradable municipalwaste (BMW) and the pre-treatment of wastes before landfilling, to reduce waste volume andminimise the environmental impact of disposal. The Landfill Directive sets targets andtimescales for reducing the amount of biodegradable municipal waste (BMW) sent to landfill.These targets and timescales for the UK are as follows:

75% of 1995 levels by 2010

50% of 1995 levels by 2013

35% of 1995 levels by 2020

Municipal Wastes and Biodegradable Municipal Wastes are defined in the Landfill Directive asfollows:

‘municipal waste’ is waste from households, as well as other waste which, because of itsnature or composition, is similar to waste from households; and

‘biodegradable waste’ means any waste that is capable of undergoing anaerobic oraerobic decomposition, such as food and garden waste, and paper and paperboard.

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3.2 National Context

The key national legislation and policies that have influenced the preparation of ScottishBorders Council’s Integrated Waste Management Strategy are summarised below.

Scotland’s Vision for Zero Waste

In January 2008, the Scottish Cabinet Secretary for the Environment announced a new policyapproach to Scotland’s waste, based on a concept of ‘zero waste’. He announced ambitious newtargets for recycling and composting, and set limits on the amount of waste allowed to go tolandfill (5% by 2025) and energy from waste (25% by 2025). He also reversed the previousScottish Executive’s preferred approach to large shared centralised energy from waste facilities,branding them as inefficient, and expressed a preference for small, localised residual wastetreatment facilities, with combined heat/power provision.

Scotland’s Zero Waste Plan

The changes to Scottish Government policy led to the development of a new Zero Waste Planfor Scotland published in June 2010, which replaced the 2003 National Waste Plan.

The Zero Waste Plan outlines the Scottish Government’s vision for a zero waste society, whereALL waste is seen as a resource; Waste is minimised; valuable resources are not disposed of inlandfills, and most waste is sorted, leaving only limited amounts to be treated.

The Zero Waste Plan outlines twenty two actions through which the aims of the plan are to beachieved, including:

landfill bans for specific waste types aiming to reduce greenhouse gas emissions andcapturing their value;

separate collections of specific waste types, including food (to avoid contaminating othermaterials);

two new targets that will apply to all waste (in the past only applicable to municipalwaste): 70% target recycled and maximum 5% sent to landfill, both by 2025;

restrictions on the input to all energy from waste facilities. Previously the ScottishGovernment stated this was only applicable to municipal waste. This replaces the 25%energy from waste cap for local authority collected municipal waste with an approachthat requires equivalent treatment standards for all waste streams and sectors(household, commercial and industrial waste;

development of a Waste Prevention Programme for all wastes, making prevention andreuse central to actions and policies;

The new Zero Waste Plan is a plan for all of Scotland’s waste (household, commercial andindustrial waste), not just municipal waste.

Further information on Scotland’s Zero Waste Plan can be found atwww.zerowastescotland.org.uk

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Waste (Scotland) Regulations 2012

The Zero Waste Plan outlined that a package of regulatory measures would be required in orderto implement a number of its actions. This culminated in the introduction of The Waste(Scotland) Regulations 2012 which came into force on the 17th May 2012.

The Regulations provide for the collection, transport and treatment of key recyclable materials(paper, card, plastic, metal and glass) and food waste, placing additional requirements on localauthorities and businesses in this regard.

Specific measures introduced by the Waste (Scotland) Regulations 2012 include:

A requirement on local authorities to provide householders with:o A separate collection service for dry recyclables (paper, card, plastic metal and

glass) from January 2014.o A separate collection service for food waste (apart from rural areas) from January

2016.


A requirement for businesses to present:o Dry recyclables (metals, plastic, paper, card and glass) separately for collection

from 1st January 2014o Food waste of more than 50kg/week separately for collection from 1st January

2014, with those producing less than 50kg/week exempt until the end of 2015.



A ban on biodegradable municipal waste going to landfill from 1st January 2021

A ban on the use of macerators and food waste disposal units from 1st January 2016 toensure food waste is not deposited in a public drain or sewer. This does not apply todomestic properties or rural areas.

Landfill Allowance Scheme (LAS)

The Landfill Allowance Scheme (Scotland) Regulations 2005 came into force in April 2005. TheScheme introduced allowances for the amount of biodegradable municipal waste localauthorities can send to landfill in order to meet the requirements of the Landfill Directive.

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Where local authorities fail to meet their allocated targets they are liable to a penalty of £150for each tonne they exceed their targets by. There is a possibility that Councils could ‘trade’landfill allowances to offset the cost of penalties (further information on this is available on theSEPA website).

In 2010 negotiations between the UK and the EU Commission redefined the scope of the term“municipal waste” for the purposes of the Landfill Directive to include both household wasteand waste from other sources which is similar in nature and composition, including a significantproportion of waste generated by business but not collected by Local Authorities.

According to 2008 data published by SEPA, Scotland has already met its share of the 2013Landfill Directive target but needs to divert a further 530,000 tonnes of BiodegradableMunicipal Waste by the next reporting year in 2020.

Illustrative Landfill Allowance Scheme Biodegradable Municipal Waste Allocations for each ofthe Local Authorities are outlined in a Scottish Government publication entitled ‘Zero WastePlan guidance for Local Authorities’ issued in March 2011. The allowances for Scottish Bordersare detailed in appendix 4.

The Landfill Allowance Scheme is currently suspended and the Scottish Government haveindicated that they intend to revoke the majority of its requirements. The Waste (Scotland)Regulations 2012 go much further and will therefore be used to drive the required change toachieve future European and Zero Waste Plan targets rather than the Landfill AllowanceScheme. However until such time that the Landfill Allowance Scheme is fully revoked there isstill the possibility it may be reinstated, although this is thought unlikely.

Climate Change Act

The Climate Change (Scotland) Act 2009 came into force in August 2009. Chapter 5 of the Actcontains provisions which enable Scottish Ministers to make regulations relating to theacquisition of accurate information about waste, and the promotion of waste reduction andrecycling by different methods.

Chapter 5 includes the following sections:

Section 78 - Waste Prevention and Management PlansSection 79 - Information on WasteSection 80 - Recyclable Waste: Facilities for Deposit etcSection 81 - Recyclable Waste: Facilities for Deposit at Events etcSection 82 - Procurement of RecyclateSection 83 - Targets for Reduction of Packaging, etcSection 84 - Deposit and Return SchemesSection 85, 86, & 87 - Administration of Deposit and Return SchemesSection 88 - Charges for Supply of Carrier Bags

Through the Council’s commitment to the Scottish Climate Change Declaration, and thelegislative proposals put forward by the Climate Change Act, these issues have the potential toimpact upon the Council’s waste management proposals.

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3.3 Land-Use Planning Context

The revised EU Waste Framework Directive (WFD) outlines a number of requirements withregards to waste management that have implications for the planning system. The planningsystem has a crucial role in delivering waste management facilities for all waste to ensure theobjectives and targets of Scotland’s Zero Waste Plan are met. The Scottish Government, withlocal planning authorities and SEPA, will need to ensure the land use planning system supportsthe Zero Waste Plan. To achieve this, the Zero Waste Plan will constitute the National WasteManagement Plan along with the following:

National Planning Framework 2;

Scottish Planning Policy (SPP);

Planning Advice Note 63 (including revised versions);

SEPA Waste Data Sources: including Waste Data Digests, Local Waste ManagementReports, Site Capacity and Infrastructure Reports and Maps;

SEPA Thermal Treatment of Waste Guidelines 2009 (currently being reviewed);

and will replace the following:

the National Waste Plan and 11 Area Waste Plans 2003;

Household Waste Prevention Action Plan (Scotland) 2007;

Business Waste Framework for Scotland 2007.

Scotland’s Zero Waste Plan and Scottish Planning Policy make it clear that planning authoritiesshould make a variety of provisions in the new Local Development Plans for all types of wastefacility, including site identification, criteria based policies and the identification of sufficientindustrial land to allow for some to be used for waste processing (although not all industrialsites will be suitable for such uses).

Both the Strategic Development Plan (SDP) for Edinburgh and the South East of Scotland(approved in June 2013) and the Council's proposed Local Development Plan (approved byCouncil on the 25th September 2013) take cognisance of the requirements of the Zero WastePlan and Scottish Planning Policy.

Policy 14 (Waste Management and Disposal) of the SDP includes reference to ensuring LocalDevelopment Plans encourage proposals for recycling and the recovery of waste, considerlandfill development issues and safeguards Easter Langlee as a site for waste treatmentfacilities.

Policy IS10 (Waste Management Facilities) of the proposed Local Development Plan refers tothese requirements as well as supporting the provision of waste facilities within a hierarchy ofthe Council's facilities and the deliverance of the Council's Waste plan. The Council will also bepreparing Supplementary Guidance on Waste Management which will give further advice onthis subject for the benefit of a wide range of interested users.

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Action 1All future revisions and/or updates to the Local Development Plan to take account of the ZeroWaste Plan and Scottish Planning policy.

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3.4 Financial Context

Landfill Tax

The landfill tax was introduced in 1996 under the Finance Act 1996 with the aim of divertingwaste away from landfill and into more sustainable waste management options such asrecycling and re-use. Initially the landfill tax rate was £8 per tonne but this has steadilyincreased due to the ‘landfill tax escalator’. The rate of landfill tax has increased by £8 per tonneper annum since 2010/11 and is set to reach £80 per tonne in 2014/15. (In comparison, theCouncils 2013/14 landfill ‘gate fee’ is currently £24.50 per tonne).

Under the provision of the Scotland Act 2012 the Scottish Parliament will have the power to setlandfill tax from April 2015.

The Landfill Tax (Scotland) Bill was introduced on 17th April 2013 and outlines provisions for atax on disposals to landfill in Scotland.

The Scottish Government has indicated that it will not set landfill tax rates lower than those inplace for the UK Landfill Tax and that the Scottish tax rates will mirror the UK rates in 2015/16.However the UK Government has provided no detail as to the rate of landfill tax beyond2014/15.

It is not possible to predict with any certainty what the rate of landfill tax will be beyond2014/15. However the funding provided by the Scottish Government either through theRevenue Support Grant or the Zero Waste Fund makes no provision for increasing landfill taxcosts to local authorities. Any further increases in landfill tax beyond 2014/15 will place anadditional fincancial pressure on the Council.

Strategic and Zero Waste Funding

The Strategic Waste Fund (SWF) was the previous Scottish Executive’s grant funding mechanismto support Councils in meeting EU Landfill diversion targets. It evolved in two elements - ‘SWF1’was used to fund kerbside recycling/composting collection activities; ‘SWF2’ was proposed togive long term financial support to Councils, for additional costs associated with residual wastetreatment (such as energy from waste).

Scottish Borders Council received ‘SWF1’ funding between 2004 and 2007 to introduce itskerbside collections for recyclables (paper, card, cans and plastic) and garden waste, constructthree new waste transfer stations and upgrade five Community Recycling Centres.

In 2008, the Scottish Government removed the ring fenced SWF, with the funding for SWF1being mainstreamed into Council budgets. In addition the Scottish Government announced a‘zero waste fund’ of approximately £80m to assist businesses and Local Authorities with thedelivery of the new Zero Waste Plan. However the Scottish Government has not expressed anyintentions to replace SWF2 in support of long term residual waste requirements.

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The ambitious nature of the Scottish Government’s recycling targets has a cost implication toCouncils.

Landfill Allowance Scheme (LAS)

If the landfill allowance scheme was re-introduced Scottish Borders Council would face penaltiesimmediately as the proportion of Biodegradable Municipal Waste we send to landfill is aboveour allowance. In 2014/15 it is projected that the Council would be exceeding its LandfillAllowance Allocation by approximately 6,000 tonnes amounting to a financial penalty of somewhere in the region of £900,000 (i.e. £150 per tonne) for that financial year. This would be thecase until mid 2015 when the new Integrated Waste Treatment Facility becomes operational,which forms part of the Councils long term waste treatment contract.

As outlined in section 3.2 the Scottish Government has indicated that it intends to revoke theLandfill Allowance Scheme.

Public Sector Finance

In addition to the financial challenges highlighted above local authorities are facingunprecedented cuts in public sector funding. Significant savings will need to be made over thecoming years in order to bridge this funding gap.

Scottish Borders Council has identified that there will be a gap of approximately £28 million inits revenue budget between the “Cost of Continuing” with existing operations and the fundingavailable between 2013/14 and 2017/18. In order to reduce Council spend by an equivalentamount the Council has identified a number of Efficiencies, Service Rationalisation and BusinessTransformation Savings to bridge this gap. One of these Transformation Savings is thedevelopment of this Integrated Waste Management Strategy which is required to make savingsamounting to sum £800,000 (see appendix 5).

Achieving the Scottish Government’s ambitious waste and recycling targets outlined within theZero Waste Plan during a period of austerity means that the actions in this plan will have to beprioritised and decisions reached on which targets are achievable with the funding that isavailable.

In order to achieve a balance between targets for waste and recycling and financial savings, theCouncil will seek solutions that offer value for money, that are flexible enough to adapt to ourchanging circumstances and that offer additional social, economic and environmental benefitsto the local area. This Integrated Waste Management Strategy will identify the future resourceimplications for waste management in the Scottish Borders.

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4 Waste Composition and Arisings

4.1 Current Municipal Waste Arisings

It can be seen from Table 1 and Figure 2 that there has been a steady decrease in municipalwaste arising for the Scottish Borders since 2007/08. The main cause of this downward trend isthought to be the result of reduced consumer consumption linked to the global economicdownturn. Local and national education campaigns relating to waste reduction have assisted inshifting consumer behaviour away from the throw away culture adding to the decreasing trend.

Table 1: Municipal Waste Arisings

Municipal Waste Arisings (tonnes, %of total)Financial

YearLandfilled Recovered Recycled

TotalMunicipal

WasteManaged

73683 0 61942004-5

92.2% 0.0% 7.8%79877

61101 0 119132005-6

83.7% 0.0% 16.3%73014

61334 0 116432006-7

84.0% 0.0% 16.0%72977

51123 0 257912007-8

66.5% 0.0% 33.5%76914

46978 147 264922008-9

63.8% 0.2% 36.0%73617

43584 233 266812009-10

61.8% 0.3% 37.8%70498

40230 511 270082010-11

59.4% 0.8% 39.9%67749

38033 263 269102011-12

58.3% 0.4% 41.3%65207

38206 221 253702012-13

59.9% 0.3% 39.8%63797

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Figure 2: Municipal Waste Arisings

4.2 Projected Municipal Waste Arisings

In order to forecast future waste arisings, and progress towards achieving European andnational targets a waste data modelling exercise has been completed.

The following projections take account of projected performance of the following plannedprojects:

The delivery of New Integrated Waste Treatment Facility in 2015

The removal of kerbside garden waste service in 2014

The introduction of new food waste collections in 2015

The accurate forecasting of future waste arisings and waste data modelling is extremelycomplex as it can be influenced by a number of variables, most of which are out with the controlof the Local Authority, including:

economic growth;

population growth over time;

demographic changes, e.g. changes in household sizes;

performance of recycling schemes;

future European and national waste policy;

new legislation, e.g. Waste (Scotland) Regulations 2012;

national awareness campaigns

Figures 3 and 4 outline projected Biodegradable Municipal Waste (BMW) sent to landfill up to2020/21 based on 0% waste growth, 1% growth and 1% reduction. This is based on residualwaste continuing to go to landfill until 2015 when the new Integrated Waste Management

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Facility is expected to start accepting Council waste and diverting it away from landfill. Forinformation on landfill allocations (appendix 4) and the calculation of BMW, please visitwww.sepa.org.uk

Figures 3 and 4 highlight that the Council will exceed its landfill allowance allocation (seeappendix 4) until the new Integrated Waste Management Facility becomes operational in 2015.This demonstrates that Scottish Borders Council will not face financial penalties associated withthe Landfill Allowance Scheme should the Scottish Government decide to reinstate it.

Figure 3: Historic and Projected Biodegradable Municipal Waste to Landfill (2005/06 to2020/21)

BMW Landfilled

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BMW BMW Allowance Estimated BMW allowances to 19/20 0% Waste Growth 1% Waste Growth 1 % Waste Reduction

Figure 4: Projected Biodegradable Municipal Waste to Landfill (2013/14 to 2020/21)

BMW Landfilled

2500

7500

12500

17500

22500

27500

2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21

Estimated BMW allowances to 19/20 0% Waste Growth 1% Waste Growth 1 % Waste Reduction

Figure 5 shows the projected Municipal Solid Waste to landfill up to 2020/21. This is based onresidual waste continuing to go to landfill until 2015 when the new Integrated WasteManagement Facility is expected to start accepting Council waste and diverting it away fromlandfill.

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Figure 5 highlights that the Council will achieve a waste to landfill rate of 14.7% by 2015/16,which is well on the way to meeting the Scottish Government’s Zero Waste Plan target of only5% of waste to landfill by 2025. The decrease in waste to landfill seen in 2015 is the result of thenew Integrated Waste Management Facility becoming operational which will divert a significantproportion of waste away from landfill.

Figure 5: Historic and Projected Municipal Solid Waste to landfill (2004/05 to 2020/21)

Projected MSW Tonnage and % to Landfill

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MSW Landfilled (Tonnes) MSW Landfilled Projected (Tonnes) Scot Gov Target (%)

MSW Landfilled (%) MSW Landfiled Projected (%)

Figure 6 shows the projected Household Recycling and Composting Rates up to 2020/21. Ithighlights that the Council will see a decrease in recycling performance from 41.1 % in 2013/14to 35.8% in 2014/15, a drop of 5.3%, due to the removal of the kerbside garden service. It willthen increase by 6% in 2015/16 to 41.8% once the new food waste service is introduced and thenew Integrated Waste Treatment Facility becomes operational.

Figure 6 demonstrates that the current planned projects will not enable the Council to achievethe Scottish Governments aspirational recycling targets (50% by 2013, 60% by 2020 and 70% by2025), as outlined in the Zero Waste Plan, or the EU Waste Framework Directive recyclingtargets (50% by 2020).

The additional actions outlined within this report will assist the Council improve its recyclingperformance. It is highly unlikely that these additional actions will enable the Council to achievethe Scottish Government’s Zero Waste recycling and composting targets. However it isanticipated they will allow the EU Waste Framework Directive Target (i.e. 50% by 2020) to beachieved.

The annual household waste recycling and composting performance data (appendix 6),produced by the Scottish Environment Protection Agency (SEPA), confirms that the averageLocal Authority recycling and composting rate was 41.2% in 2012. Scottish Borders Council

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achieved a recycling and composting rate of 42.8% (i.e. above the national average), 17th

position out of the 32 Local Authorities in Scotland.

Scottish Borders Council’s position on the Local Authority recycling and compostingperformance league table is likely to fall in future years as a result of the planned projects (i.e.removal of the garden waste service). This is an unavoidable outcome of the need to balancethe delivery of a Waste Service that is ‘fit for purpose’ and financially sustainable in the longterm, versus achieving the Scottish Government’s aspirational recycling targets.

Figure 6: Projected Household Recycling and Composting Rates (2004/05 to 2020/21) – Showsperformance against ZWP targets for 2013, 2020 and 2025 plus the WFD target of 2020.

Recycling Rates

0.0%

10.0%

20.0%

30.0%

40.0%

50.0%

60.0%

70.0%

80.0%

2004-5 2005-6 2006-7 2007-8 2008-9 2009-10 2010-11 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21 2021-22 2022-23 2023-24 2024-25 2025-26 2026-27

HH Recyc Rate (sepa) HH recyc % Kside Removed, NES & Food Scot Gov household by 2013 EU Waste Framework Household Target

A large proportion of the waste diverted from landfill by the new Integrated Waste TreatmentFacility will be classified as ‘recovery’ rather than ‘recycling’. For example the char/ashproduced by the Energy from Waste (EfW) facility will be mixed with aggregate, captured aspart of the mechanical sorting process, to create a product for use in the construction industry.This product is classified as recovery by the Scottish Government and will not count towardsScottish Borders Council’s recycling performance.

Figure 7 shows the projected Household Recovery rates up to 2020/21. It highlights thatScottish Borders Council will see recovery rates increase from around 2% in 2013/14 to 43% in2015/16 which is directly linked to the introduction of the new Integrated Waste TreatmentFacility.

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Figure 7: Projected Household Recovery Rates (2013/14 to 2020/21)

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%

Figure 8 shows the projected proportion of household waste recovered, recycled and landfilledup to 2020/21. This demonstrates that Scottish Borders Council’s combined recycling,composting and recovery performance will be the region of 80% by 2015/16 with only 15%going to landfill.

Figure 8: Projected proportion of household waste Recovered, Recycled and Landfilled(2013/14 to 2020/21)

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% Recovered % Recycled % Disposed

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The impact that variable waste arisings have on planning and delivering effective waste services,means that greater importance has to be placed on monitoring and forecasting the variouswaste streams that the Council deals with.

4.3 Waste Composition Analysis

Regular analysis of residual waste collected at kerbside and received at Community RecyclingCentres has been undertake since the introduction of the Council’s kerbside recycling services in2004. This information has been used to monitor and develop waste and recycling serviceswithin the Scottish Borders. Appendix 7 details composition analysis carried out during April2013 compared to September 2012. Figure 9 shows the average composition of a residual wastebin.

The compositional analysis outlines that in terms of weight organic kitchen waste makes up byfar the largest proportion of the residual waste bin. By volume dense plastic and plastic filmmake up the largest proportion followed by kitchen waste.

Action 4Replace the Council weighbridge software to ensure it is fit for purpose.

Action 5Waste Compositional analysis of households waste to be carried out on an annual basis.

Action 3Upgrade the Council’s Waste Data Management Software to ensure it is fit for purpose.

Action 2Carry out regular waste data reviews and forecasts in order to guide decisions regarding thefuture provision of the Council’s waste services.

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Figure 9: Average composition general waste wheeled bin

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5 Scottish Borders Area Profile

The waste services delivered by Scottish Borders Council are shaped by the demographics of theBorders. The following outlines some of the key statistics that impact on the waste Servicesprovided by Scottish Borders Council:

There are approximately 57,000 households in the Scottish Borders of which around38,000 are in urban areas and 19,000 are in rural areas.

Scottish Borders Council is the 6th largest Local Authority covering some 473,614hectares (1,827 square miles);

The Scottish Borders is a rural local authority with only two towns, Galashiels andHawick, with more than 10,000 people;

The population of the Borders is currently around 113,000;

The Borders has a low population density as shown by figure 10. The population densityfor all of Scotland is 4.71 people per hectare, compared to 0.24 people per hectare in theBorders, making Scottish Borders the 7th most rural local authority in Scotland and the4th most rural mainland Local Authority area after Highland, Argyll & Bute and Dumfries& Galloway.

Between 2010 and 2035 the National Records of Scotland project a 10.6% increase inpopulation for the Scottish Borders; from 112,870 to 124,824

Figure 10: Population Density 2011: Number of persons per hectare

Source: National Registers Office

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It is clear that the demographics of the Borders present the Council with a number of uniquechallenges with regards to providing waste services. This is due to their impact on collection,disposal and treatment costs including:

The length of Refuse Collection routes i.e. large distance travelled to service relativelylow households compared to an urban area.

High fuel costs due to distance travelled

High vehicle wear and tear due to distance travelled

Limited access to treatment facilities

Distance to alternative treatment facilities

Haulage costs

General logistics issues

Householder access/travel distance to Community Recycling Centres and Bring Sites

It is also important to recognise that providing universal services across such a rural area isextremely challenging and may not be possible all cases.

All of these factors must be carefully considered as part of any future decision making withregards to the future provision of Scottish Borders Council’s Waste Services.

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6 Waste Prevention

6.1 National Context

The waste hierarchy (see figure 11) ranks waste management options according to the bestenvironmental outcome taking into consideration the lifecycle of the material. The lifecycle of amaterial is an environmental assessment of all the stages of a product's life from-cradle-to-grave (i.e. from raw material extraction through materials processing, manufacture,distribution, use, repair and maintenance, and disposal or recycling).

In its simplest form, the waste hierarchy gives top priority to preventing waste. When waste iscreated, it gives priority to preparing it for reuse, then recycling, then other recovery, and last ofall disposal (i.e. landfill).

Figure 11: Waste Hierarchy

The Scottish Government s Zero Waste Plan outlines that:

“The Scottish Government will develop a Waste Prevention Programme for all waste, in line withthe EU Waste Framework Directive, in order to place prevention at the heart of zero waste policyand action”

In October 2013 the Scottish Government issued it programme to reduce waste and create amore productive and circular economy entitled “Safeguarding Scotland’s Resources: Blueprintfor a more resource efficient and circular economy”. This forms part of the Government’s ZeroWaste agenda and economic strategy.

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Scottish Government outline that if we keep on consuming on current trends we will need toextract 75% more raw materials in the next 25 years. Most of these are finite resources, andeven those that can be renewed have limits on what can be used sustainably. This situation andthe path we are on is clearly unsustainable, not just for our environment, but for our futureeconomic prosperity too. The actions Scottish Government are committing to are designed tosafeguard our prosperity by helping Scotland use our planets precious resources moreefficiently.

The Scottish Government’s programme aims to make today’s model of production andconsumption more resource efficient (doing more with less, and minimising waste), while alsolaying the foundations for a more circular model of resource use: a circular economy. In acircular economy, we keep products and materials in use for as long as possible, extract themaximum value from them whilst in use, then recover and regenerate new products andmaterials at the end of each service life. This requires a shift in the traditional production-consumption approach: designing for disassembly or remanufacturing and useable by-products,and designing out wasted energy, materials and pollution.

The overall aim of the Scottish Government’s programme is to prevent waste, increase resourceefficiency and enable a shift towards a more circular economy (see figure 12).

To support this overall aim, the programme will focus on the following objectives:

helping businesses use resources more efficiently;

stimulating innovation and business opportunities in the reuse, refurbishment andremanufacturing sectors;

promoting sustainable product design;

improving Producer Responsibility and reducing the impacts of packaging;

improving access to information on materials and their significance to our economy or tobusinesses;

stimulating a culture of resource efficiency, influencing behaviour through awarenessraising, education and skills development;

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Figure 12: A circular economy

The Scottish Government’s target is to reduce Scotland’s waste by 7% by 2017 from 2011 levels,and achieve a 15% reduction by 2025.

6.2 Local Activities

Figure 13 shows that there has been a decrease in the total household waste arising for theScottish Borders since 2004/05. The main cause of this downward trend is thought to be theresult of reduced consumer consumption linked to the global economic downturn. Local andnational education campaigns relating to waste reduction have assisted in shifting consumerbehaviour away from the throw away culture adding to the decreasing trend.

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Figure 13: Household Waste Arisings

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Table 2 shows household waste arisings for the Scottish Borders since 2004/05. It confirms thatthe tonnage of waste produced by each household in the Scottish Borders has reduced from1.12 tonnes in 2004/05 to 0.91 tonnes in 2012/13.

Table 2: Scottish Borders Council Household Waste Arisings

Financial Year Tonnes Tonnes per Household

2004/05 59,096 1.12

2005/06 55,596 1.04

2006/07 61,319 1.14

2007/08 58,919 1.08

2008/09 54,566 0.99

2009/10 54,322 0.98

2010/11 52,711 0.94

2011/12 54,426 0.96

2012/13 51,800 0.91

The General Register Office for Scotland (GROS) projection shows that the number ofhouseholds will increase by 23% by 2035 from 2010. It also projects that the population willincrease from 112,870 in 2010 to 124,824 in 2013. This growing population will have a majorimpact on municipal waste arisings as will the new Borders Railway.

Waste Prevention

The Council works in partnership with and supports various waste minimisation and reuseorganisations and regularly meets to maintain existing and develop new opportunities to

Action 6Continue to monitor tonnes of waste produced per household on annual basis as an indicatorof waste growth in the Scottish Borders.

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promote the activities and benefits of the sector. Projects already completed include theproduction of a local Charity Shop Map that provides details of the charity shops and reuseprojects in the local area. Social/community enterprises and the not for- profit sector have akey role in developing waste prevention projects, particularly in taking forward reuse andrefurbishment projects. This is recognised in the Plan (see Section 9.3 on ‘The Role of theCommunity Sector’).

The Council also provides information and advice to businesses on waste minimisation andresource efficiency and support projects that demonstrate locally the financial andenvironmental benefits of waste minimisation and resource efficiency.

The public sector is amongst the largest employers in the area, and through its diverse activitiesgenerates large quantities of waste. In 2006 audits were undertaken on the waste produced byScottish Borders Council. This provided information on the quantities and types of waste beingproduced and has led to the introduction of actions, such as proper segregation and recycling ofwastes. The Council will develop an internal waste management plan for waste created by itsown activities. This will be monitored and reviewed.

Action 7Develop an internal SBC Zero Waste Aware Plan as part of the Council’s EnvironmentalAwareness Campaign, Treadlightly.

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7 Recycling and Composting

7.1 Targets & Legislation

The Scottish Governments Zero Waste Plan outlines a set of aspirational recycling andcomposting targets (see table 3) which apply to Local Authorities. These targets are significantlymore challenging than the EU Waste Framework target, which requires 50% of household wasteto be recycled by 2020.

Table 3: Household Recycling and Composting Target

Year Target

2010 40%

2013 50%

2020 60%

2025 70%

Figure 14: Scottish Borders Council Household Recycling and Composting Rate

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Financial Year

Over the last 8 years Scottish Borders Council’s recycling performance has significantlyincreased as a result of the introduction of new recycling services from 7.8% in 2004/05 to41.1% in 2012/13 (see figure 14).

The recycling rate reduced from 45.8% in 2010/11 to 41.1% in 2012/13 which is due acombination of the following:

Reduction in the tonnage of kerbside recyclables (i.e. paper, cardboard, cans andplastics) and garden waste collected.

Re classification of some waste treatment activities from recycling to recovery, by SEPA,following the introduction of more stringent end destination analysis through Waste

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Data Flow. For example; historically all waste sent for composting, other than that whichis rejected and sent to landfill, has been classified as recycling. It has now beendetermined that the oversize wood captured as part of the garden waste compostingprocess, that is turned into a feedstock for biomass boilers, used to heat buildings is tobe classified as recovery rather than recycling.

The Waste (Scotland) Regulations 2012 introduce the following key measures:

A requirement on local authorities to provide householders with:

o A separate collection service for dry recyclables (paper, card, plastic metal andglass) from January 2014.

o A separate collection service for food waste (apart from rural areas) from January2016.


A requirement for businesses to present:

o Dry recyclables (metals, plastic, paper, card and glass) separately for collectionfrom 1st January 2014

o Food waste of more than 50kg/week separately for collection from 1st January2014, with those producing less than 50kg/week exempt until the end of 2015.



A ban on biodegradable municipal waste going to landfill from 1st January 2021

A ban on the use of macerators and food waste disposal units from 1st January 2016 toensure food waste is not deposited in a public drain or sewer. This does not apply todomestic properties or rural areas.

In order to comply with the Waste (Scotland) Regulations 2012 Scottish Borders Council will berequired to not only maintain or improve statutory household and business recycling servicesbut also introduce new ones such as food waste collections.

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7.2 Household Recycling and Composting

Kerbside Recycling Service

Scottish Borders Council currently provides the range of kerbside recycling services outlined intable 4.

Table 4: Kerbside Recycling Services

Collection Type Bin Type Capacity Frequency Coverage

Recycling i.e. paper, card,cans and plastic.

Blue Lid 240 litre Alternate WeeklyCollection

100%

Garden GreenLid

180 litre Alternate WeeklyCollection - Mar to Nov

4 Weekly - Dec to Feb

Approximately 65%

Only provided urbanin areas.

The current Kerbside Recycling Services were introduced on a phased basis between 2005 and2006 with the aid of Strategic Waste Funding. In November 2010 a number of changes weremade to the Kerbside Collection Services to improve the efficiency of operation and reduce costincluding:

Collection frequencies reduced from weekly to alternate weekly.

Wheeled bins were introduced for the Recycling Collection, which replaced recyclingsacks.

Efficient delivery of the Kerbside Collection Service

The Council continually monitors and analyses vehicle collection routes using a combination ofoperational experience and route optimising software. This has enabled a number ofimprovements and efficiencies to be introduced maximising the potential of vehicles and crews,including the introduction of the alternate weekly collection system.

A review of working patterns across the Councils Waste Services is to be undertaken. The aim ofthe review will be to determine the optimum solution for delivering the Councils refusecollection service in order to:

maximise utilisation of the Councils refuse collection fleet and waste facilities

maximise the potential of staff

ensure the efficient delivery of the service and reduce costs

Action 8Regularly review and optimise vehicle collection routes using operational experience androute optimising software.

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The review will include an assessment of various working patterns, including shift working andthe delivery of a 7 day week service. When considering the various options the impacts onwaste producers (i.e. households and traders) and the Councils other services must beconsidered.

Kerbside Recycling Collection

The range of materials collected by the current Kerbside Recycling Collection has expandedsince its introduction and now includes additional items such as aerosols, paper based drinkscartons (i.e. tetra paks), yoghurt pots, margarine tubs, magazine film etc.

The materials collected via the kerbside recycling collection service are bulked up at variousWaste Transfer Stations across the Scottish Borders. It is then bulk hauled, under contract withNew Earth Solutions as part of the Councils long term waste treatment contract, to a MaterialsRecovery Facility where the commingled materials are sorted into there constituent parts. Thesegregated materials are then sent on to various reprocessors to be recycled back into products.

The Materials Recovery Facility undertakes regular audits of the input material to determinecontamination levels (i.e. materials that should not have been put out for recycling). Thecontamination levels have varied since introduction but are considered to be low. In 2012/13the average contamination rate was 3.2% (i.e. 96.8% of the material collected was recycled).

Kerbside Garden Waste Collection

In 2004 the Council received funding from the Scottish Executive via the Strategic Waste Fund tointroduce kerbside garden waste collections in urban areas and to provide home compostingbins in rural areas.

Over the years, the lack of a kerbside garden waste collection services in rural areas has resultedin regular, on-going requests from householders, Councillors and Members of the ScottishParliament for expansion of the service.

Action 11Continue to target intervention work to increase participation rates in areas of low/poorperformance.

Action 12Continue to monitor Kerbside Recycling Collection contamination levels to inform servicedelivery and communications campaigns.

Action 10Continue to expand the range of materials accepted through the Kerbside RecyclingCollection Service.

Action 9Review working patterns in order to determine the optimum solution for delivering theCouncil’s waste services.

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Although Local Authorities have a duty to collect household waste, which includes gardenwaste, under Section 45 of the Environmental Protection Act 1990 Part 2 they are under no dutyto provide a separate collection of garden waste.

Given the non-statutory nature of the garden waste service, the requirement to provide a ‘fitfor purpose’ service that is financially sustainable, combined with the Council’s budgetpressures a review of garden waste collection services has been undertaken.

The options considered as part of the review are outlined below:

1. Status Quo - Retain the current kerbside garden waste collection service to urban areasonly and continue promotion of waste minimisation and home composting

2. Withdraw Service - Remove the current kerbside garden waste collection service andincrease promotion of CRC garden waste services along with waste minimisation andhome composting

3. ‘Charged for’ Service to existing customers - Introduce a chargeable kerbside gardenwaste collection service to the urban areas only i.e. those areas that currently receive afree service.

4. ‘Charged for’ Council wide service - a chargeable kerbside garden waste collectionservice to the whole of the Borders.

The review concluded that the kerbside garden waste collection service should be withdrawn atthe end of the 2013/14 financial year. As part of the withdrawal of the service households inurban areas will be provided with the option of a home composter. In addition householderswill be able to access the Councils Community Recycling Centres and dispose of their gardenwaste free of charge. This will ensure all households across the Scottish Borders are providedwith the same level of service with regards to garden waste.

The withdrawal of the garden waste service will generate saving of approximately £475,000 perannum, which will contribute towards the Council’s wider savings target. However it will alsoresult in the Councils household recycling rate reducing by 5.3%, which will impact on theCouncils ability to achieve the Scottish Government’s aspirational recycling targets.

Food Waste

The Waste (Scotland) Regulations 2012 require Local Authorities to provide a separatecollection service for food waste (apart from rural areas) from January 2016. For ScottishBorders Council this means providing a food waste collection service in Hawick, Galashiels,Tweedbank, Selkirk, Peebles and Jedburgh amounting to some 24,000 households.

Scottish Borders Council has developed a Food Waste Business Case with the assistance of ZeroWaste Scotland, the Scottish Government’s Zero Waste implementation body. This has been

Action 13Withdraw the Council’s Kerbside Garden Waste Collection Service at the end of March 2014.

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used to inform the Councils Food Waste review which assessed various options for theintroduction of a food waste service that would comply with the requirements of the Waste(Scotland) Regulations 2012.

The food waste review concluded that the best option for Scottish Borders Council is tointroduce a food waste collection service in 2015. This will minimise the financial impact ofintroducing the service whilst still complying with the requirements of the Waste (Scotland)Regulations 2012 to deliver a service to households by 1st January 2016.

It is anticipated that the introduction of the food waste service will:

Cost in the region of £600,000 per annum (still to be finalised)

Capture an additional 1,900 tonnes

Increase the Councils household recycling rate by 3.4%

Scottish Government has made Zero Waste Funds available to Local Authorities to support theintroduction of the new food waste collection service. Scottish Borders Council submitted itsapplication to the Zero Waste Fund in early July 2013 and is currently awaiting feedback. Thefunding support is limited and will only partially cover the cost for introducing the service. Theongoing cost of providing the service falls to the Council. This will place an additional financialburden on the Councils revenue and capital budgets during a period of austerity.

Housing Association – Communal Waste Facilities

Housing Associations are provided with the same level of kerbside recycling service as any otherhousehold. In a number of cases communal waste facilities (i.e. communal wheeled bins) orsacks are provided rather than a separate wheeled bin.

Housing Association properties present the Council with a number of ongoing collection issuesincluding:

Fly tipping

Incorrect presentation of materials i.e. bulky items

Restricted access to collection points

Reduced participation

The Council has and continues to work closely with tenants, owners and housing association toresolve outstanding issues. This has included the development of the Scottish Borders HousingAssociation (SBHA) concordat. The biggest stumbling bock with regards to resolving the ongoingcollection issues is ownership of the problem. This is a very complex area as in many cases it isnot possible to pin point who is responsible for the issue and therefore how or who shouldresolve it.

Action 14Commence delivery of a food waste collection service, in urban areas only (i.e. Hawick,Jedburgh, Galashiels, Tweedbank, Peebles and Selkirk), from April 2015.

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A guidance note is currently being developed by the Council in order to clearly identify its rolesand responsibilities with regards to the collection of both kerbside recycling and residual waste.

7.3 Commercial Recycling and Composting

Scottish Borders Council offers a range of waste management services to commercialorganisations in the Scottish Borders. At present the Council provides trade waste collectionservices to around 740 businesses.

The Council is obliged by the Environmental Protection Act to collect waste from commercialbusinesses if requested to do so (a charge made by the Council for commercial waste mustensure full cost recovery). The Waste (Scotland) Regulations 2012 has placed an additionalobligation on Local Authorities to provide a separate collection of food waste to business’swhere requested.

The rural nature of the Borders and its proximity to waste management facilities are such thatthere are very few third party waste providers in the Scottish Borders when compared to thecentral belt. As a result Scottish Borders Council collects and manages the majority of thecommercial waste (i.e. similar in composition to household waste) produced in the Borders andis relied upon by commercial waste producers to manage their waste. This is not just an issuethat relates to smaller businesses as it is not uncommon for national waste providers that havecontracts with businesses operating across the UK to sub contract to Scottish Borders Council.

It is therefore clear that the needs and requirements of commercial waste producers must betaken into account when considering the future provision of the Councils waste services,including food waste.

Action 16Ensure the requirements and needs of commercial waste producers are considered whenmaking decisions regarding the future provision of the Council’s Waste Services.

Action 15Develop a Housing Association Guidance Note that clearly defines the Council’s roles andresponsibilities with regards to collection of kerbside recycling and residual waste, with theobjective of improving presentation and participation levels.

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7.4 Community Recycling Centres

Scottish Borders Council currently operates 6 Community Recycling Centres in the followinglocations:

Galashiels

Selkrik

Hawick

Eshiels, Peebles

Eyemouth

Duns

The sites are open between 9am and 5pm on weekdays and 9am and 4pm on weekends exceptat Selkirk, which is open between 10am and 6pm weekdays and 11am and 6pm on weekends.Access to the sites is only available to Scottish Borders householders for recycling and disposalof bulky waste and general household rubbish. Traders are currently not permitted access tothe sites.

Containers are provided at each site to accept materials for recycling and disposal. All ScottishBorders Councils Community Recycling Centres have attendants on site who are responsible fordaily maintenance of the site, and are available as a point of contact for members of the publiccoming on to the site.

The number and type of materials that can be accepted for recycling at the CommunityRecycling Centres has increased since 2005 to include items such as; garden waste, wood, TV’s,Small Electrical Items, scrap metal, car batteries, waste oil, fridges and freezer, fluorescentlights, gas bottles, glass, textiles, books and music, etc. The size and layout of the sites is likely torestrict the Councils ability to expand this further with out further capital investment.

Various upgrades have been made to the existing sites including new vehicle control measures,safety upgrades and site layout improvements. In order to maximise opportunities for recyclingand reuse further upgrades will be required in the future.

The average annual recycling rate achieved at Scottish Borders Council’s Community RecyclingCentres has ranged from 45% to 58%, see figure 15. However it is our aim to achieve a recyclingrate of 60% by 2014 and 70% by 2016. This will be achieved through ongoing education andawareness campaigns, targeted assistance by dedicated staff at sites with lower recycling rates,and the upgrade and redevelopment of sites where ever possible.

Action 18Aim to achieve a recycling rate at Community Recycling Centres of 60% by 2014 and 70% by2016.

Action 16Continue to develop and upgrade the Councils Community Recycling Centres.Action 17Continue to develop and upgrade the Council’s Community Recycling Centres.

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Figure 15: Average Recycling Rate at Scottish Borders Council Community Recycling Centres

0%

10%

20%

30%

40%

50%

60%

70%

2008/9 2009/10 2010/11 2011/12 2012/13

A pilot project is planned at Selkirk Community Recycling Centre to assess the feasibility ofcollecting materials at Recycling Centres for reuse. The aim is to work in partnership with localreuse organisations and charities to redistribute items donated into the ‘reuse’ container atSelkrik Community Recycling Centre. If the pilot project is successful it may be introduced atother Community Recycling Centres.

A review of the Community Recycling Centre provision is required to ensure that it meets theneeds of site users and to improve the recycling performance of the sites. There are a numberof key elements that need to be reviewed including:

a. Hours of operations - The current hours of operation are historic and reflect theCouncils operational needs rather than the needs of the householders as they go aboutthe daily life. Traffic counters were installed at each of the sites in 2011 to monitor siteusage. Analysis of this information will help the Council determine the most appropriateopening times for the sites. As part of the review Scottish Borders Councils will considerseasonal operating hours, which may enable sites to stay open longer during thesummer and shorter in the winter and also whether the hours should be shifted back orforward in the day.

b. The distribution, number and location of sites – The distribution, number and locationof the sites is historic and pre dates local government reorganisation, which took place in1996, when the District Councils were in existence. It is unlikely that if Scottish BordersCouncil were to start with a blank sheet of paper the distribution, number and locationof sites would be as they are now. This has resulted in certain communities andmembers feeling that the service is not equitable when compared to other communities.

Action 19Deliver the re-use pilot project at Selkirk Community Recycling Centre.

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A high level review of the distribution, number and location of sites has been undertakenwhich supports this view. The review concluded that the single most appropriate step tomake the distribution more balanced would be the introduction of a CRC in Kelso.Further work is required to establish the necessary detail on this proposal. A furtherdetailed review is also required in order to identify the optimum opening hours for allfacilities taking account of the needs of the Borders’ public. However, it important torecognise that the rural nature of the Borders is such that it is highly unlikely thatScottish Borders Council will be able to provide a completely equitable service to allhouseholders and communities.

c. Trade Waste Access – The current Community Recycling Centres are only accessible tohouseholders. This presents a number of issues for Scottish Borders Council including:

Distinguishing between genuine householders using works vans to dispose ofhousehold waste and traders trying to access the site without permission.

Traders accessing the site without permission.

Traders disposing of waste free of charge placing an additional financial burden onCouncil budgets.

The site foot prints are small and were designed with householders in mind, nottraders who generally have larger vehicles.

Traders with large vans unloading large amounts of waste restrict access tohouseholders and slow traffic flow through sites.

All of the above create friction between householders, traders and Scottish BordersCouncil operatives which effect customer experience.

Denying traders access to the Community Recycling Centres restricts their access torecycling and disposal services which limits their ability to divert waste form landfill andincrease recycling rates. This is particularly important in such a rural area that has veryfew disposal and recycling options other than the Councils current kerbside services. Areview of the options available is required in order to address the issue outlined abovewhich must be assessed as part of the wider Community Recycling Review to ensure it isfully integrated into the Community Recycling Centre service.

Action 20Undertake a review of the Council’s Community Recycling Centre provision to ensure it is ‘fitfor purpose’ and financially sustainable in the long term.

Areas to be reviewed include:

hours of operations;

distribution, number and location of sites; and

trade waste access

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7.5 Recycling Points

Recycling Points are unattended recycling facilities sited throughout the Scottish Borders whichgive residents the means to recycle a range of materials locally. The points are positioned inareas which best serve local communities, and offer facilities for collection of various materials(see table 5):

Table 5: Number and type of Recycling Points in the Scottish Borders

Type Number of Sites

Glass 72

Textiles 70

Books and Music 36

WEEE 1

As of October 2013 the total number of recycling points throughout the Scottish Bordersnumbered 72. The Council aims to increase the number of Recycling Points over the comingyears throughout the area. The Council will seek to engage with the local community andencourage local residents and Community Councils to help identify suitable local sites/areasthat would benefit from additional recycling facilities.

7.5 Other key Recyclables

Glass Recycling

Scottish Borders Council currently provides 72 glass recycling points which are serviced byViridor under a contract which has recently been extended.

The Waste (Scotland) Regulations 2012 place a requirement on Local Authorities to providehouseholders with a separate collection service for dry recyclables (paper, card, plastic metaland glass) from January 2014.

In order to comply with the Waste (Scotland) Regulations 2012 with regards to the requirementto provide a separate glass collection Scottish Borders Council has two options:

1. Provide a separate kerbside collection of glass to all householders; or2. Provide a network of glass recycling points that will achieve the same outcome as

implementing a separate kerbside collection of glass to all householders

The Council intends to achieve compliance with the Regulations by expanding the number ofglass recycling points for the following reasons:

Action 21Seek to expand the number of Recycling Points in the Scottish Borders.

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It currently presents the most financially sustainable option

It will ensure the glass collected is colour separated enabling ‘closed loop’ recycling

Finding suitable locations for glass recycling points is extremely challenging for many differentreasons. It is the Councils intention to complete a review of potential sites with Viridor, localcommunities and land owners before introducing new sites.

In order to expand the number of sites the Council will consider migrating away from thecurrent igloo style glass bank to wheeled bins as they take up less room and are easier toservice.

Current Igloo Banks Wheeled Bins

Textiles

Scottish Borders Council currently provides 70 textile recycling points across the Borders, whichare serviced by Nathans Waste Savers.

In addition the Council works with Nathans to provide textile recycling opportunities for schoolsand Community Groups via Nathans ‘Rag Bag’ recycling scheme. The Schools and CommunityGroups receive an income for the textiles they collect which can be put towards local projects.

A review of the textile service provided by the Council is required which should include:

The potential to increase the number textile recycling points

Completion of a procurement process to ensure that the Council is getting best value forthe textiles collected via the textile recycling points

The potential to introduce a kerbside collection service for textiles

Action 22Expand the number of Glass Recycling Points in the Scottish Borders.

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It is important that charities operating in the local area are consulted as part of the textilereview due to the potential impact on their business. It is not the intention of the Council tonegatively impact on Charities however it must assess all potential options if it is to worktowards achieving the Scottish Governments aspirational recycling targets.

Recycling on the Go (RotG)

In April 2013 the Council introduced 100 ‘Recycling on the Go’ bins across the Scottish Bordersin areas of high foot fall. The service was introduced using Zero Waste Funding from the ScottishGovernment. The aim was to provide householders and visitors with access to same level ofrecycling services as they receive at home whilst out and about.

Waste Electrical and Electronic Equipment (WEEE)

The Council currently accepts household WEEE (items such as TVs, fridges, toasters, etc) at all ofits Community Recycling Centres. In addition the Council has provided a WEEE bank in Kelso atthe Sainsbury’s Recycling Point as part of a pilot project. If this pilot is successful further WEEEbanks may be provided at other Recycling Points.

The collection of WEEE from the Council’s waste facilities is currently undertaken by ERP UK Ltd(a Producer Compliance Scheme) and is funded by the producers of WEEE.

Action 23Undertake a review of the textile service in order to determine the optimum solution.

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Batteries

The Council currently works with ERP UK Ltd (a producer compliance scheme) to collecthousehold batteries at Recycling Centres and selected Council buildings (i.e. Schools, librariesetc). Applicable retailers are also required to have free take-back systems in store for householdbatteries.

Wood

The wood accepted at each of Scottish Borders Councils Community Recycling Centres is bulkhauled to the central belt where it is made into a feedstock for the Chipboard market. In orderto minimise the haulage costs a new storage bay is to be constructed at Hawick Waste TransferStation.

7.6 Processing of Recyclates

The Council has contracts in place for the following materials:

Waste Type Contract Expiry

Kerbside Recyclates (Paper, Cardboard, Cans &Plastics etc)

2039

Garden Waste 2039

Glass Banks 2018

In order to ensure best value, reduce cost and maximise income the Council has developed aprocurement programme for securing fixed term contracts for the following waste streams:

Waste Type Procurement Period

Scrap Metal 2013/14

Wood 2013/14

Textiles 2013/14

WEEE & Domestic Batteries 2014/15

Plaster Board 2014/15

Waste Oil 2014/15

Vegetable Oil 2014/15

Asbestos 2014/15

Hazardous Waste 2014/15

The procurement programme has been split into two phases based on priority.

It should be noted that the procurement programme is a live document and may change overtime.

Action 24Construct a wood bay at Hawick Waste Transfer Station.

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7.7 Waste Treatment Contract (see section 8.2 for more detail)

In April 2011 Scottish Borders Council signed a 24 year contract with New Earth Solutions towork in partnership to deliver a waste treatment solution at Easter Langlee, Galashiels. Thefacility will divert waste away from landfill and provide “second chance” recycling and recoveryfor general waste. It is anticipated that the new Integrated Waste Management Facility willcommence operations in 2015 and increase the Councils household recycling performance by2.6%.

The Integrated Waste Management Facility will not replace the Kerbside Recycling Collectionsystem but will assist in ensuring any materials left in the general waste are diverted fromlandfill. The communication campaign surrounding the delivery of the Integrated WasteManagement Strategy will need to reflect this in order to combat a potential down turn inparticipation of the Councils current kerbside recycling collection scheme and quality ofmaterial collected.

It is important for the Council to continue to promote the Kerbside Recycling Collection as thematerials collected are of a much higher quality than those expected to be captured by the newIntegrated Waste Management Facility. The recyclate is therefore less likely to be effected byany new quality standards imposed on the recycling industry and it will provide greaterprotection from any market fluctuations.

Action 27Continue to work in partnership with New Earth Solutions to deliver the new IntegratedWaste Management Facility at Easter Langlee, Galashiels.

Action 26Maintain and deliver a communication programme that supports the Councils waste andrecycling services.

Action 25Secure contracts or agreements for processing/treating and sale of materials collected by theCouncil through the continued delivery of the ‘Procurement Programme’.

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8 Residual Waste Management

8.1 Residual Waste Collections

Household Collections

The Environmental Protection Act (EPA) 1990 imposes a general duty on the Council, as a wastecollection authority, to arrange for the collection of household waste in its area. The Act alsogives the Council the authority to determine the arrangements for collection of householdwaste, including the size, number and placing of receptacles for collection.

All households in the Scottish Borders receive a collection of residual waste every two weeks aspart of the alternate weekly collection with dry mixed recyclates & garden waste. The standardsize of a wheeled bin is 180/190 litres. Where individual household bins are not practicable,larger communal wheeled containers are used. Where it is not possible to provide a wheeledbin (limited access or storage) and/or the householder is infirm or has reduced capability bluerefuse sacks are provided free of charge by the Council.

The Council also provides assisted lifts, following assessment, where householders are infirm orhave reduced capability.ResidualBulky Items Collection

The Council currently provides a special uplift service for bulky household items that cannot fitinto the normal wheeled bin for which a charge is made. In 2011/12 a review of the specialuplift service was undertaken in order to bench mark its charges against other Local Authoritiesand determine the cost of providing the service. The review concluded that other LocalAuthorities in the surrounding area had a minimum charge for multiple items and that theservice was operating at a considerable loss. At the time the charge was £5.50 per item up to amaximum of 4 items per household.

In 2012/13, following the review, the Council increased the charge to £25 for up to 5 bulkyhousehold items. A high level review of the bulky waste service in 2013 confirmed that thebulky uplift service still operates at a loss. However it is unlikely that a significant increase in thecharge will generate further income as householders would use the service less. It has thereforebeen concluded that the Council should continue to subside the service.

Action 28Regularly review the Bulky Waste Service in order to monitor the cost of delivering theservice.

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Community Recycling Centres

Mixed/general household waste is accepted at all of the Councils Community Recycling Centres.Householders are encouraged to segregate their waste as much as possible and make use of therecycling facilities at the Community Recycling Centres.

Businesses and traders are not currently permitted access to the sites for the disposal ofmixed/general waste. The Councils intention is to complete a review of the CommunityRecycling Centre provision including the possibility of providing access to businesses and tradersat the sites.

Commercial Waste Collections

The Council currently has around 750 business customers that receive a residual wastecollection service for which a charge is made. In addition there are 263 business customers thatpurchase grey sacks on regular basis but do not have a contract. As outlined in section 7, theCouncil also offers recycling collections and provides businesses with advice on recycling andwaste minimisation. A variety of different sized collection containers are available to businesscustomers.

The Council also provides a general waste skip hire service to business customers whererequested, although this is not seen as core business as there are a number of third party skipoperators in the area.

A review of the Council’s commercial waste services is to be carried out during 2013/14 in orderto ensure they are fit for purpose and financially sustainable in the long term. Where theCouncils fees and charges do not reflect the cost of delivering the service they will be increased.

8.2 Residual Waste Treatment and Disposal

Short Term Residual Waste Treatment

Easter Langlee Landfill Site

The Council currently operates the only non-hazardous landfill site in the Scottish Borders, atEaster Langlee, Galashiels. The majority of the residual waste collected by the Council isdeposited at the site. It also represents the only disposal option in the Scottish Borders for thirdparty waste operators providing skip and kerbside collection services.

Figure 16 demonstrated that the tonnage of waste deposited at Easter Langlee Landfill hasdecreased substantially since 2008/09. This is due to a combination of increased recycling rates

Action 29Complete a review the Councils Commercial Waste Services to ensure they are ‘fit forpurpose’ and financially sustainable in the long term.

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and the economic down turn. The tonnage of waste to landfill will significantly decrease whenthe new Integrated Waste Management Facility is developed at Easter Langlee in 2015.

Figure 16: Total tonnage of waste deposited at Easter Langlee Landfill Site

0.00

5000.00

10000.00

15000.00

20000.00

25000.00

30000.00

35000.00

40000.00

45000.00

50000.00

55000.00

2008

-9

2009

-10

2010

-11

2011

-12

2012

-13

To

nn

es

A landfill life cycle analysis is currently being undertaken to assess the long term future of EasterLanglee Landfill Site. The review will assess the current and future cost of the operation, theopportunities for reducing the cost and the potential for alternative arrangements (i.e. bulk haulwaste to disposal facilities out with the Scottish Borders). The review will take into account theimpact on the Councils other waste services, third party waste operators and the potentialknock on impact on the Borders economy.

A review of the landfill infill plan is currently being undertaken to maximise the void capacity ofthe landfill site and to reduce the need to construct new cells before the new Integrated WasteManagement Facility becomes operational.

A review of leachate management is being undertaken to ensure that it is fit for purpose andrepresents best value.

The waste infill review and leachate management review are critical to the Landfill Life CycleAnalysis as they have a significant bearing on the ongoing operational costs of the site.

Action 30Complete the Landfill Life Cycle Analysis.

Action 31Complete the Landfill Waste Infill Review.

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Landfill Gas Management

On the 3rd November 2008 the Council signed a 15 year contract with ENER.G Natural Power Ltdto design, build and operate a landfill gas utilisation system at Easter Langlee Landfill Site.ENER.G has since installed a network of boreholes in the landfill waste mass from which theyactively draw landfill gas. The landfill gas, which has high methane content, is used to as a fuelsource to run diesel engines, which have been converted to run on landfill gas. These engines inturn generate approximately 0.8 mega watts of electricity, enough to run approximately 1000households, which is fed back into the national grid.

The landfill gas utilisation system not only generates green electricity but has significantlyreduced the landfill sites impact on the environment as methane is an extremely potent greenhouse gas. In addition it ensures the Council complies with the obligations of its PollutionPrevention Control (PPC) Permit for the Landfill.

The Council receives an income for the electricity generated from the site which contributestowards the Councils revenue budget. The amount of electricity generated is directlyproportional to the amount of landfill gas produced. It is likely over the coming years that theamount of landfill gas generated will decrease as will the income generated. This will result inreduced income and a potential revenue budget pressure.

As the landfill expands additional boreholes will be installed in order to minimise the potentialfor landfill gas emissions to atmosphere.

Long term residual waste treatment and disposal

In January 2008, the Scottish Cabinet Secretary for the Environment announced a new policyapproach to Scotland’s waste, based on a concept of ‘zero waste’. This included a reversal of theprevious Scottish Executive’s preferred approach to large shared centralised energy from wastefacilities, branding them as inefficient, and expressed a preference for small, localised residualwaste treatment facilities, with combined heat/power provision.

This policy shift meant that there was no longer a commitment from National Governmenttowards developing an Outline Business Case for the Lothian & Borders Waste ManagementProject. The aim of which had been to develop a large scale waste facility that would manage allthe Municipal Solid Waste collected by the 5 Councils.

The Lothian & Borders Waste Management Project was formally closed in May 2008, with eachCouncil developing their own local proposals. Following the decision to formally close theLothian & Borders Waste Management Project Scottish Borders Council determined that that along term ‘processing solution’ was required in order to meet the legislative and financialdrivers the Council would face in future years.

Action 32Complete the Landfill Leachate Management Review.

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Due to the variety of technologies on the market and their possible combinations the Councildid not prescribe the technology to be used and instead outlined a key set of outcomes andused the Competitive Dialogue process for the procurement of a solution that would meet theCouncil’s needs.

The Council concluded the procurement project in April 2011 when it signed a 24 year contractwith New Earth Solutions to work in partnership to deliver a waste treatment solution at EasterLanglee, Galashiels.

At the time of award it was anticipated that the facility at Easter Langlee would be delivered intwo phases. The first phase consisted of Mechanical Biological Treatment (MBT), separatingrecyclable materials from the waste and creating other products, including compost for landrestoration and a waste derived fuel.

The second phase proposed an Energy from Waste facility to convert the waste derived fuel intorenewable energy, avoiding waste travelling outside the Scottish Borders. In early 2012 NewEarth and Scottish Borders Council started to consider an Integrated Solution including Energyfrom Waste at Easter Langlee from the outset, with the following benefits

construction efficiencies;

reduced disruption to the community with all construction in one phase;

operational efficiencies with both waste technologies being delivered from day one; and

waste derived fuel remaining on site to create renewable energy.

The Council concluded that the new Integrated Solution (see figure 17) represented a bettereconomic and environmental solution for the Scottish Borders even though it resulted indelayed delivery (i.e. from x to 2015).

Figure 17: Artists impression of the new Integrated Waste Management Facility

Previously general waste was to be sorted within the Mechanical Biological Treatment facility,as follows:

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Mechanical stage – metal and plastic separated for recycling

Mechanical Stage – waste derived fuel and biofines separated

Biological Stage – biofines composted to make Compost Like Output

Rejected material for landfill.

Until delivery of Phase 2 (Energy from Waste facility), the waste derived fuel was proposed tobe removed to a third party, very likely to be in mainland Europe. The mechanical stage ofprocessing remains part of the intended project. Metals and plastics will still be removed forrecycling. Instead of being transported away by road, the waste derived fuel will now be used inAdvanced Thermal Conversion (ATC) units proposed for the facility. The ATC technology hasbeen developed by New Earth in the last two years and works by heating the waste derived fuelwith little or no oxygen to create a gas. This gas then goes to engines to create renewableelectricity for the grid, similar to the existing landfill gas system at Easter Langlee. Altogether itis anticipated the site will export about 3MW of electricity, enough for 2,500 typical houses. Itwill also provide heat for use locally, see figure 18.

Figure 18: Illustrative map outlining how the District Heating Scheme might look

Once operational it is anticipated that the new Integrated Waste Management Facility will assistthe Council:

Achieve the Council’s projected Landfill Allowance Scheme allocation up to 2020/21. Asa result the Council is unlikely to face any financial penalties should the ScottishGovernment decide to re-instate the Landfill Allowance Scheme.

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Achieve a Municipal Solid Waste to landfill rate of 14.7% in 2015/16, which is well on theway to achieving the Scottish Governments target of only 5% to landfill by 2025.

Minimise costs associated with the landfill tax escalator and increasing landfilloperational costs.

Comply with the Waste (Scotland) Regulation 2012 requirements to:

o Remove dry recyclables (plastics and metals) from mixed waste prior toincineration (from July 2012).

o Ban biodegradable municipal waste going to landfill from 1st January 2021

Scottish Borders Council continues to work in partnership with New Earth Solutions and is wellon the way to obtaining the required permits (i.e. planning and permitting) to operate thefacility.

Berwickshire Options Appraisal

One of the requirements of the new Integrated Waste Management Facility is that once it isoperational all general/residual waste collected by the Council will have to be delivered to thefacility.

The Council will utilise its Waste Transfer Stations in Peebles, Hawick and Galashiels to bulk haulwaste to the facility reducing transport costs, refuse collection route lengths and vehicleemissions. However there is no waste transfer station in the Berwickshire area. Refuse Collectedin the Berwickshire area is already disposed of at Easter Langlee at the landfill and routes havebeen optimised.

The objective of the Berwickshire Options Appraisal is to determine the optimum solution fortransporting residual waste collected in the Berwickshire area to the new Integrated WasteManagement Facility over the life of the Contract.

Action 33Complete the Berwickshire Options Appraisal.

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9 Zero Waste Aware

9.1 National Campaigns

Zero Waste Scotland prepares national waste prevention and recycling communicationstrategies for local authorities, the private sector and the community recycling sector. Examplesof the campaigns include: Love Food Hate Waste, Home Composting and Unwanted Mail.

9.2 Local Campaigns and Initiatives

Scottish Borders Council has undertaken a wide range of waste awareness promotionalactivities in the past. These include waste minimisation events with local organisations andcharities, a charity seminar and workshop, school presentations and competitions, communitygroup talks and presentations and information stands stalls at various local shows and events.

The Council will continue to carry out waste awareness activities that aim to:

encourage waste prevention behaviours and participation in waste prevention initiatives;

increase participation in the kerbside recycling collection services;

reduce contamination levels;

increase usage of Community Recycling Centres and Bring Points;

increase public awareness of wider environmental, social and financial issues relating towaste.

9.3 Role of Community Sector

The community sector has the potential to assist the Council in delivering its WasteManagement Plan and meeting future recycling and composting targets, whilst providingadditional local community benefits.

Scottish Borders Council currently works in partnership and supports a number of organisationswhich facilitate reuse and recycling of household items (e.g. Homebasics, Scrapstore andBookDonors). The Council will continue to support the development of local projects whicheffectively promote sustainable waste management across the Borders.

Action 34Work with Zero Waste Scotland to assist in the communication of national campaigns andinitiatives at a local level.

Action 35Develop a Zero Waste Communications Plan to further promote and increase participationlevels in existing kerbside recycling collection services.

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Action 36Continue to promote and support community sector based waste projects that promotesustainable resource management across the Borders.

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10 Non Municipal Waste

Non-municipal waste is a broad category that includes commercial and industrial wastes,construction and demolition waste, and waste from agriculture, fishing and forestry.

Scottish Borders Council offers various waste and recycling services to commerce and industryin the Council area. However, although the Council collects a majority of the Commercial wastethat is similar in composition to household waste, it only collects around 17% of the totalCommercial Waste arisings.

Waste produced by commerce and industry is important because it is a large waste stream forwhich little information exists. Construction and demolition wastes alone account for aroundhalf of the controlled waste managed in Scotland.

Data on non-municipal waste is currently unreliable in relation to amounts produced, recycledand its composition, as there is no statutory requirement for businesses to provide data on thewastes they produce. The Scottish Government and SEPA propose to take action to improvedata on non-municipal waste. This has been included as an action in Scotland’s Zero Waste Plan.

Table 6 shows a summary of the total waste arisings in the Scottish Borders in 2010/11 and isbased on information provided in SEPA’s Waste Data Digest 12.

Table 6: Summary of Waste Arisings in Scottish Borders (2010/11)%

Waste Arisings Tonnes Percentage

Household* 52,711 21

Commercial 90,120 35

Industrial 39,541 15

Construction & Demolition 72,953 29

Special Waste Unknown Unknown

Total 255,325 100

*This is a subset of municipal waste arisingsSource: Waste Data Digest 12 – Note Commercial and Industrial waste arisings for 2010/11were estimated from the national business waste survey carried out by SEPA in 2006.

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Figure 19: Percentage breakdown of Waste Arisings in Scottish Borders (2010/11) bywaste category

21

35

15

29

0

Household Commercial Industrial Construction & Demolition Special Waste

Table 6 and figure 19 outline that commercial and construction and Demolitions wastesrepresents by far the biggest waste streams in the Scottish Borders. The Council thereforesupports greater action and focus on this sector by the Scottish Government and relevantagencies that encourage better management of non-municipal wastes.

Table 7 outlines the total waste managed by Scottish Borders Council in 2010/11. This confirmsthat the Council currently manages approximately TBC tonnes of waste in the Scottish Borders

or approximately 50% TBC of the total waste arisings.

Table 7: Total amount of waste managed by Scottish Borders Council

Source Tonnes

Local Authority Collected Municipal Waste 67,749

Third party waste accepted at Easter Langlee Landfill 4,221

Industrial Waste Managed 15,185

Construction and Demolition Waste processed at the Easter Langlee,Aggregate Recycling Facility TBC

Total 87,155 TBC

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Construction and Demolition Waste

Scottish Borders Council operates the largest aggregate recycling facility in the Scottish Bordersat Easter Langlee, Galashiels.

In 2010/11 the Council processed x tonnes of construction and demolition waste at the siteamounting to x % of the total arisings.

The materials received at the site are mechanical sorted and processed into various products foruse in the construction industry. This ensures that the majority (95% plus) of the materialsreceived at the site are recycled and diverted from landfill.

European and National Policy

The revised Waste Framework Directive requires Member States to achieve 70% recycling andrecovery by weight of non-hazardous construction and demolition waste excluding naturallyoccurring material. Scotland’s Zero Waste Plan includes a target to recycle and prepare for re-use 70% of construction and demolition waste by 2020.

Local Policy

Scottish Borders Council is committed to diverting construction, demolition and excavationwaste from landfill in line with the Scottish Governments Zero Waste Plan.

Action 37Continue to support the development of the Aggregate Recycling Facility at Easter Langlee,Galashiels.

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Appendix 1 - Scottish Borders Council – Integrated Waste Management Strategy Action Plan

The table below outlines the Action Plan to support the delivery of Scottish Borders CouncilsIntegrated Waste Management Strategy. This Action Plan is a list of key activities, but does notinclude recurring work activities.

In the table below:

• Short-term means within a year• Medium-term means within three years• Long-term means more than three years• Ongoing means either repeats or has no completion date

Low Priority

Medium Priority

High Priority

Priority was scored taking into account landfill diversion, resource implications and statutoryrequirements.

The implementation of the Action Plan will be monitored via the Waste Programme Board:

No Action Timescale Priority

1 All future revisions and/or updates to the Local DevelopmentPlan to take account of the Zero Waste Plan and ScottishPlanning policy.

Ongoing

2 Carry out regular waste data reviews and forecasts in order toguide decisions regarding the future provision of the Councilswaste services.

Ongoing

3 Upgrade the Councils Waste Data Management Software toensure it is fit for purpose.

Short-term

4 Replace the Council weighbridge software to ensure it is fit forpurpose.

Short-term

5 Waste Compositional analysis of households waste to becarried out on an annual basis.

Ongoing

6 Continue to monitor tonnes of waste produced per householdon annual basis as an indicator of waste growth in the ScottishBorders.

Ongoing

7 Develop an SBC Zero Waste Aware Plan as part of the Council’sEnvironmental Awareness Campaign, Treadlightly.

On-going

8 Regularly review and optimise vehicle collection routes usingoperational experience and route optimising software.

Ongoing

9 Review working patterns in order to determine the optimumsolution for delivering the Councils waste services.

Long-term

10 Continue to expand the range of materials accepted throughthe Kerbside Recycling Collection Service.

Ongoing

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11 Continue to target intervention work to increase participationrates in areas of low/poor performance.

Ongoing

12 Continue monitor Kerbside Recycling Collection contaminationlevels to inform service delivery and communicationscampaigns.

Ongoing

13 Withdraw the Councils Kerbside Garden Waste CollectionService at the end of March 2014.

Short-term

14 Commence delivery of a food waste collection service, inurban areas only (i.e. Hawick, Jedburgh, Galashiels,Tweedbank, Peebles and Selkirk), from April 2015.

Medium-term

15 Develop a Housing Association Guidance Note that clearlydefines the Councils roles and responsibilities with regards tocollection of kerbside recycling and residual waste, with theobjective of improving presentation and participation levels.

Short-term

16 Ensure the requirements and needs of commercial wasteproducers are considered when making decisions regardingthe future provision of the Councils Waste Services.

Ongoing

17 Continue to develop and upgrade the Councils CommunityRecycling Centres.

Ongoing

18 Aim to achieve a recycling rate at Community RecyclingCentres of 60% by 2014 and 70% by 2016.

Long-term

19 Deliver the re-use pilot project at Selkirk Community RecyclingCentre.

Short-term

20 Undertake a review of the Councils Community RecyclingCentre provision to ensure it is ‘fit for purpose’ and financiallysustainable in the long term.

Areas to be reviewed include:

hours of operations;

distribution, number and location of sites; and

trade waste access

Short-term

21 Seek to expand the number of Recycling Points in the ScottishBorders.

Medium-term

22 Expand the number of Glass Recycling Points in the ScottishBorders.

Short-term

23 Undertake a review of the textile service in order to determinethe optimum solution.

Long-term

24 Construct a wood bay at Hawick Waste Transfer Station. Short-term

25 Secure contracts or agreements for processing/treating andsale of materials collected by the Council through thecontinued delivery of the ‘Procurement Programme’.

Ongoing

26 Maintain and deliver a communication programme thatsupports the Councils waste and recycling services.

Ongoing

27 Continue to work in partnership with New Earth Solutions todeliver the new Integrated Waste Management Facility atEaster Langlee, Galashiels.

Medium-term

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28 Regularly review the Bulky Waste Service in order to monitorthe cost of delivering the service.

Ongoing

29 Complete a review the Councils Commercial Waste Services toensure they are ‘fit for purpose’ and financially sustainable inthe long term.

Short-term

30 Complete the Landfill Life Cycle Analysis. Short-term

31 Complete the Landfill Waste Infill Review. Short-term

32 Complete the Landfill Leachate Management Review. Short-term

33 Complete the Berwickshire Options Appraisal. Short-term

34 Work with Zero Waste Scotland to assist in the communicationof national campaigns and initiatives at a local level.

On-going

35 Develop a Zero Waste Communications Plan to furtherpromote and increase participation levels in existing kerbsiderecycling collection services.

On-going

36 Continue to promote and support community sector basedwaste projects that promote sustainable resourcemanagement across the Borders.

On-going

37 Continue to support the development of the AggregateRecycling Facility at Easter Langlee, Galashiels.

Ongoing

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Appendix 2 - Scottish Borders Council - Corporate Plan Priorities

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Appendix 3 – “Ambitious for the Borders 2012” – We will work to improve life in the ScottishBorders by:

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Appendix 4 – Illustrative Landfill Allowance Scheme Biodegradable Municipal Waste Allocations (2010/11 to 2019/20)

Source: Zero Waste Plan – Guidance for Local Authorities – Use of Data to Support the Zero Waste Plan – Local Authority Recycling Targets, Landfill Diversion and theLandfill Allowance Scheme – March 2011.

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Appendix 5: Business Transformation Project – Agreed Savings

2013/14 2014/15 2015/16 2016/17 2017/18

Develop anIntegrated WasteManagementStrategy

- £500,000 £150,000 £150,000 -

- 68 -

Appendix 6 – SEPA – Household Waste – Waste Data Flow Data 2012 Calendar YearHousehold waste WasteDataFlow data 2012 CALENDAR YEAR1 2011

Local Authority HOUSEHOLD WASTE2

Arisings (tonnes)HOUSEHOLDWASTERecycled /Composted1

(tonnes)

PercentageHOUSEHOLDWASTERecycled /Composted(%)

HOUSEHOLDWASTERecovered(tonnes)3

PercentageHOUSEHOLDWASTERecovery (%)

HOUSEHOLDWASTELandfilled(tonnes)4

PercentageHOUSEHOLDWASTELandfilled(%)

PercentageHOUSEHOLDWASTERecycled /Composted(%)

Aberdeen 97,242 36,242 37.3 12 0.0 60,988 62.7 35.7

Aberdeenshire 134,708 47,889 35.6 0 0.0 86,819 64.4 33.6

Angus 60,803 24,393 40.1 3,564 5.9 32,846 54.0 41.8

Argyll and Bute 48,509 15,291 31.5 5,558 11.5 27,660 57.0 29.6

Clackmannanshire 27,737 16,348 58.9 1,443 5.2 9,945 35.9 52.0

Dumfries andGalloway

77,709 17,231 22.2 34,708 44.7 23,702 30.5 21.5

Dundee 70,103 20,794 29.7 14,653 20.9 34,655 49.4 32.4

East Ayrshire 58,793 26,107 44.4 0 0.0 32,685 55.6 46.8

EastDunbartonshire

55,233 21,368 38.7 0 0.0 33,865 61.3 37.7

East Lothian 52,346 23,461 44.8 4,686 9.0 24,200 46.2 44.1

East Renfrewshire 43,986 23,829 54.2 0 0.0 20,162 45.8 53.2

Edinburgh 187,741 68,896 36.7 0 0.0 118,845 63.3 31.1

Eilean Siar 14,299 4,251 29.7 0 0.0 10,069 70.4 26.5

Falkirk 76,111 41,979 55.2 1,870 2.5 32,262 42.4 52.7

Fife 195,595 103,303 52.8 0 0.0 92,292 47.2 54.0

Glasgow 234,209 69,113 29.5 0 0.0 165,096 70.5 26.7

Highland 126,183 55,938 44.3 812 0.6 69,436 55.0 44.5

Inverclyde 33,248 16,844 50.7 612 1.8 15,793 47.5 41.2

Midlothian 42,701 19,339 45.3 0 0.0 23,362 54.7 47.2

Moray 49,883 25,905 51.9 0 0.0 23,979 48.1 44.6

North Ayrshire 62,729 32,479 51.8 358 0.6 29,752 47.4 51.8

North Lanarkshire 155,838 62,013 39.8 0 0.0 93,826 60.2 39.4

Orkney 10,233 2,301 22.5 4,875 47.6 2,721 26.6 30.1

Perth and Kinross 75,015 41,253 55.0 0 0.0 33,761 45.0 52.3

Renfrewshire 82,126 31,911 38.9 3,177 3.9 47,050 57.3 42.3

Scottish Borders 52,861 22,648 42.8 777 1.5 29,440 55.7 46.3

Shetland Islands 10,865 1,464 13.5 7,596 69.9 1,799 16.6 16.7

South Ayrshire 57,627 27,351 47.5 0 0.0 30,275 52.5 48.2

South Lanarkshire 151,923 56,799 37.4 0 0.0 95,124 62.6 35.3

Stirling 43,190 24,052 55.7 689 1.6 17,009 39.4 53.5

WestDunbartonshire

38,944 17,193 44.1 130 0.3 21,622 55.5 45.0

West Lothian 72,345 31,129 43.0 93 0.1 41,167 56.9 43.6

TOTAL SCOTLAND 2,500,836 1,029,109 41.2 85,613 3.4 1,382,208 55.3 40.1

1All the figures are calculated according to the Zero Waste Plan - guidance for local authorities

2 Household waste is waste generated by households (see full definition in par 1.2 of the Zero Waste Plan - guidance for local authorities).3 Recovery is the fate of waste material not reused, recycled or landfilled. It includes household waste treated by incineration, mechanical biological and heat treatment. Recovery includes anyIncinerator Bottom Ash and Metals recycled as a result of treatment, and excludes the residue from incineration which is landfilled. Recovery also excludes any weight loss during the treatmentprocess.4 Includes household waste disposed of instead of being recycled and residues from incineration that are landfilled.5 LACMSW = Local authority collected municipal solid waste.

Please note local authorities report stockpiled materials in the quarter when the material is sent to reprocessors to avoid discrepancies with the total arisings. The figures are accurate atthe time of publication. However the data may be updated if further revisions are necessary.

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Appendix 7 – Compositional Analysis – 2012 vs. 2013

- 70 -

References

Perth & Kinross –Waste Management Plan 2010 – 2025

Highland Council – Waste Management Strategy – 19th March 2009

Royal Kingston – Waste Strategy – August 2004

London Borough of Merton – Municipal Waste Management Strategy – 2006 – 2021Scottish Government Zero Waste Plan – June 2010

Defra – A Practice Guide for the Development of Municipal Waste Management Strategies(November 2005)

Scottish Government - Safeguarding Scotland’s Resources: Blueprint for a more resourceefficient and circular economy – October 2013

Scottish Government & SEPA – Zero Waste Plan – Guidance for Local Authorities – Use of Datato Support the Zero Waste Plan – Local Authority Recycling Targets, Landfill Diversion and theLandfill Allowance Scheme – March 2011

Scottish Borders Council – Scottish Borders in Figures - 2010

National Records of Scotland – Scottish Borders Council Area – Demographic Spreadsheet –27/08/13

Scottish Borders Council – Corporate Plan 2013 – 2018

Scottish Borders Council Ambitious for the Borders 2012

SEPA Waste Data Digest 12 – 2010/11

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