Waste Management Strategy and Implementation
Introduction
Durham County Council together with the 7 District/Borough Councils have produced this Strategy for dealing with Municipal Solid Waste to cover the 20 years from 2001 - 2020.It follows the publication of a draft Strategy in August 2000 (Document 1, "Exploring the Options") and a subsequent and widespread consultation exercise which is reported in Document 2 "The Consultation Process". The results of this exercise have been taken into account in the preparation of this Strategy.
The consultation exercise has shown that the general public have a marked understanding of the waste management issues facing the County. In particular the following conclusions have been drawn.
- Recognition of the need for increased recycling through more local recycling centres and increased kerbside collection,
- Understanding of the importance of reducing packaging and support for the provision of facilities to deal with plastics,
- Support for more composting both at home and at centralised sites,
- Support for energy recovery without incineration rather than with incineration (although this needs to be taken in the context that public awareness of those technologies is very limited),
- Little support for landfill as the continuing major means of handling waste.
The Strategy seeks to meet the series of recycling and recovery targets proposed by the Government in their White Paper “Waste Strategy 2000” shortly to become statutory and by the EU in the Landfill Directive which within the next two years will also be legislated into UK law. These are as follows:
Waste Strategy 2000 - Recycling Targets
a) 25% of household to be recycled or composted by 2005.b) 30% of household to be recycled or composted by 2010.
c) 33% of household to be recycled or composted by 2015.
d) WDA areas 1998/99 recycling rates under 5% to achieve 10% by 2003.
Waste Strategy 2000' Recovery Targets
a) 40% of municipal waste to be recovered by 2005.b) 45% of municipal waste to be recovered by 2010.
c) 67% of municipal waste to be recovered by 2015.
European Uunion Landfill Directive Targets
a) Biodegradeable municipal waste to be reduced to 75% of that produced in 1995 by 2010.b) Biodegradeable municipal waste to be reduced to 50% of that produced in 1995 by 2013.
c) Biodegradeable municipal waste to be reduced to 35% of that produced in 1995 by 2020.
The Requirements of the Strategy
The Strategy has been developed in order to achieve the maximum flexibility and best value to the residents of County Durham. The need for a robust strategy is evident with so many uncertainties which could arise from changes in legislation, variations in both the tonnage and nature of the wastes handled and public attitudes together with the possibility of the emergence of new waste management techniques.
The principal factors which have shaped the strategy are the Waste Hierarchy, the Best Practicable Environmental Option, the Proximity Principle, local needs, an integrated approach and Best Value performance indicators.
In order to meet recycling targets, it will be necessary for all the district/borough councils to increase their kerbside collections both in the number of properties served and the range of materials targeted. The need for facilities for bulking up recyclates follows from this, as does the need for the much improved local recycling centres.
In addition, the various options identified in "Exploring the Options" demonstrated that both EU and Government targets could not be achieved without some form of "energy from waste" facility. Public perception of incinerators suggests that an alternative to incineration is more desirable and the Strategy includes the adoption of potentially suitable alternative technologies.
The Major Elements of the Strategy
The following are the major elements of the Strategy listed to reflect the framework of the Waste Hierarchy which will need to be developed over the next few years in order ensure that the County Council will achieve its objective to provide a sustainable waste management service which will meet all of the statutory requirements imposed by Best Value:
1) Reduction and Re-use - Education and Awareness
Minimising the quantity of waste produced is seen as the most desirable option in the waste hierarchy, reducing waste saves not only on disposal costs but also on the costs of raw materials and their use as well as production costs. One of the main recommendations driving the Strategy is therefore the adoption of wide ranging education and waste minimisation and awareness raising programmes. There will be a cost associated with increasing awareness, both in terms of time and resources, and experience shows that this effort must be maintained and the message continually reinforced if such programmes are to be successful.2) Recovery - Household Waste Recycling Centres
There will be two categories of site which will in future be known as Household Waste Recycling Centres.
a) New 'Super Sites' will be developed in the more populous areas of the County.The precise number of sites to be provided will be dependent on the successful operation of the initial schemes. They will be enclosed, be designed to accept all recyclable materials and where necessary, provide 'bulking up' facilities in support of the District Councils kerbside collection schemes and 'Bring Systems'. It is envisaged that the “Super Sites” will include a retail outlet for the sale of recycled goods such as compost, soil conditioners and aggregates.
b) Some existing household waste sites, none of which are capable of being redeveloped as 'Super Sites' will be closed when these new sites are developed in close proximity to them. The remaining sites will be improved in design, have more “Bring” facilities provided and carry out partial segregation of materials for onward transfer to the nearest 'Super Site'. On-site management will be enhanced for the benefit of the public and this together with the additional facilities proposed will, in time it is hoped change the perception that they are visiting a 'tip'.
3) Recovery - Waste Transfer Stations
a) The existing Transfer Stations will continue their present function of bulking up waste for onward transfer to a point of final disposal although as more and more waste is diverted from landfill their role will be modified. They will be redesigned to provide sort facilities and could also incorporate aerobic digestion vessels.b) Once the remaining landfill capacity is exhausted in the west of the County, to avoid excessive transport costs falling to the Waste Collection Authorities it will be necessary to provide new transfer facilities. Certainly one will be required to serve the Teesdale area and it is possible there will also be a need in upper Weardale. It may be possible to combine the Teesdale facility with the proposed redevelopment of the household waste recycling centre.
4) Recovery - Aerobic Digestion
a) Aerobic digestion may be carried out in a totally enclosed system in which every element of the process is strictly controlled to produce not only a good quality compost but also enable the recovery of a range of recyclables from the mixed waste stream. Ultimately it is envisaged that two sites will be developed although initially it is the intention to provide a pilot plant. Monies have already been provided by CDENT for this scheme under their remit to encourage research and development of new waste management techniques
b) Windrows, an alternative form of aerobic digestion which can be carried out externally will be developed to cater for the 'green' wastes produced by the District/Borough Councils and delivered by the general public to the household waste recycling centres.
5) Recovery - Gasification and Pyrolisis Schemes
New gasification and pyrolisis systems are currently being trialled to prove their suitability to handle municipal waste. Success in these trials will provide an alternative waste management technique which will overcome many of the problems associated with incineration. In the short term a single installation initially as a pilot is envisaged. A second plant may be required in the more distant future to meet the later targets set by the EU Landfill Directive.6) Disposal - Landfill Sites
It is recognised that even with all the aforementioned facilities in place there will continue to be a need for some landfill capacity.The identification of new sites of sufficient capacity to meet these future needs will be addressed as part of the process of development of the Waste Local Plan. With codisposal no longer an option it will be necessary to ensure that sufficient of this void space is licensed to accept that fraction of municipal solid waste which is unsuitable for reuse, recycling, or recovery.Delivering the Strategy
To ensure that all the targets can be achieved the strategy will, of necessity include a "waste to energy" element, it is the County Council's intention to pursue a policy which will avoid mass burn incineration and the strategy will therefore include the adoption of alternative "waste to energy" technologies. On this basis and the various assumptions indicated in Appendices 1 and 2 the following proposals demonstrate how such a Strategy could be implemented.
Growth rates and the nature of the waste delivered by the WCAs and the public to Household Waste Recycling Centres will be monitored and adjusted to take account of actual changes.The other assumptions will also be modified in the light of the experience which will be gained in the early years of the study period. A summary of the main assumptions follows:
- Percentage of recyclable material = 60%
- Percentage of biodegradable material = 60% *
- Capture rate for households collection by WCAs = 17.3%
- Recycling rate for ‘bring’ systems = 6%
- Growth in waste delivered by WCAs up to 2004/2005 = 2%
- Growth in waste delivered by WCAs up to 2009/2010 = 1%
Note
* Whilst the waste analysis carried out by Derwentside and Chester District indicated that the biodegradable content of the municipal waste stream is 53.8% the detailed analysis of the waste stream contained in the Governments consultation document 'Limiting Landfill' quoted the biodegradable fraction as 62.5%. For the purposes of the Strategy a figure of 60% has been adopted although it may be necessary to adjust this value as data collection systems improve.Table 1 sets out the percentage targets converted to actual tonnages and Table 2 how the new facilities could be phased to ensure that these targets are met.
Table 1 - Target Tonnages
| Year | Recycling (Household Waste) | Recovery (Municipal Waste) | BMW Diversion Rate (EU Landfill directive) |
| 2003 | 29,460 |  | |
| 2005 | 74,600 | 126,400 | |
| 2010 | 94,750 | 150,000 | 90,270 |
| 2013 | | | 126,850 |
| 2015 | 104,200 | 223,300 | |
| 2020 | | | 148,800 |
Table 2 - Phasing of Development
Adoption of this development programme will ensure that all the targets up to and including 2010 will be achieved including the EU Directive target to divert 90,270 tonnes of biodegradable waste from landfill. The facilities proposed will handle 138,000 tonnes. It may well be that more efficient techniques and extensive use of the facilities provided will ensure that the medium term targets will also be achieved. Long term targets may necessitate the development of an additional gasification/pyrolisis plant. A decision regarding the need for such a major additional investment will be made in sufficient time to ensure that all the current targets are achieved.
The adoption of this major programme of investment, estimated to be between £30m - £40m, over the next 7 years will depend upon the way in which funding for new facilities will be secured. ( The study by Arthur Anderson (Consultants) will influence the choice of funding mechanism, the detailed implementation of the programme and therefore the finalisation of this document.) In addition to this capital expenditure, revenue costs in the form of gate fees will also rise although these will be offset by reduced Landfill Tax payments resulting from the reduction of the tonnages of waste which will be landfilled under the Strategy.
As detailed design proceeds the costs of the various elements of the Strategy will be refined. No allowance will be made in the costing for any income earned from the sale of recyclables. The volatility of the market for these materials over recent years and the remoteness of the North East to the established industries using these materials would make any assumptions on such an income stream unreliable. Current regional initiatives to stimulate the use of recyclables locally may in the longer term improve the situation considerably and income may then be generated, this however is more likely to be offset the inevitable rises in gate fees.
Assumptions
Waste Analysis
Based on figures provided by Derwentside and Chester-le-Street District Councils and adjusted to include road sweepings and gully emptying.Metals (Ferrous and Non-ferrous) - 6.3%
Glass - 8.3%
Textiles - 4.0%
Plastics - 12.2%
Paper - 23.0%
Putrescibles - 25.9%
Sundries - 20.3
% of biodegradeable material - 53.8%
% of recyclable material - 60.0%
Kerbside Collection
60% of properties suitable for kerbside collection.60% participation rate.
80% of available material (60% of total) presented.
Capture Rate as a % of total of household waste collected by WCAs - 17.3%
Bring Systems
Recycling rate for 'bring' systems (only in areas unsuitable for kerbside recycling i.e. 40% of properties ) - 6.0%'Super Sites' and ex HWDCs
Recycling rate - 30.0%Recovery rate (green wastes) - 20.0%
For all other sites 50% of above rates.
Average throughput ('Super Sites') 7,000 tonnes per annum.
Average throughput (Ex HWDCs) 1,500 tonnes per annum.
Tonnages Handled
a) 1995/1996 (base year for EU Landfill Directive). Total of municipal waste generated in County Durham) - 243,860 tonnes.b) 1999/2000 (base year for recycling and recovery targets). Total of municipal waste generated in County Durham 285,620 tonnes comprising:
- Household Waste delivered by WCAs - 201,860 tonnes.
- Ind/Comm Waste delivered by WCAs - 17,500 tonnes.
- Waste delivered to HWDCs - 57,440 tonnes.
- Recycling - 8,820 tonnes.
Waste Growth
For the purposes of assessing the facilities required to achieve the objectives of the Strategy certain assumptions on the growth of the tonnage of waste generated over the next twenty years need to be applied. Currently the annual increase is about 3%. The following assumptions have been used:- For waste delivered by WCAs 2000/2001 to 2004/2005 - 2%, 2005/2006 to 2009/2010 - 1%
- For waste delivered to HWDCs 2000/2001 to 2003/2004 - 3%, 2004/2005 to 2006/2007 - 2%, 2008/2009 to 2009/2010 - 1%
Note
The lower growth rates applied for waste delivered by the WCAs reflects the quantities delivered by them over recent years.As previously stated one of the main recommendations of the strategy is the adoption of waste minimisation and awareness raising programmes and these together with the introduction increased quotas and stricter enforcement of the Producer Responsibility (Packaging Waste) Regulations and increased disposal costs will it is anticipated result in the reduction of the rate of increase and the eventual levelling out of waste generation.
These growth rates will however be continuously monitored and adjusted to take account of actual changes to the tonnage of waste produced. The nature of the waste will also be closely monitored and any significant changes in either of these factors will lead to changes in the mix and type of waste management facilities which will be developed.
Assumed Waste Profile
The programme of development of waste facilities has been based on the following waste profile. The figures will be adjusted to reflect the actual tonnages of waste delivered by the Waste Collection Authorities and General Public during the early years of the period addressed by the Strategy.Table A - Projected Tonnages Generated
| Year | % Increase | Waste collected by WCA | Waste collected by HWDC | Commercial Waste | Municipal Waste | |
| WCA | HWDC | | | | |
| 1995 | Base Year for EU Landfill Directive | 243,840 | ||||
| 2000 | | | 210,680 | 57,440 | 17,500 | 285,620 |
| 2001 | 2 | 3 | 214,890 | 59,160 | 17,500 | 291,550 |
| 2002 | 2 | 3 | 219,190 | 60,930 | 17,500 | 297,620 |
| 2003 | 2 | 3 | 223,570 | 62,760 | 17,500 | 303,830 |
| 2004 | 2 | 3 | 228,040 | 64,640 | 17,500 | 310,180 |
| 2005 | 2 | 2 | 232,600 | 65,930 | 17,500 | 316,030 |
| 2006 | 1 | 2 | 234,930 | 67,250 | 17,500 | 319,680 |
| 2007 | 1 | 2 | 237,280 | 68,600 | 17,500 | 323,380 |
| 2008 | 1 | 2 | 239,650 | 69,970 | 17,500 | 327,120 |
| 2009 | 1 | 1 | 242,050 | 70,670 | 17,500 | 330,220 |
| 2010 | 1 | 1 | 244,470 | 71,380 | 17,500 | 333,350 |
| 2013 | | | 244,470 | 71,380 | 17,500 | 333,350 |
| 2015 | | | 244,470 | 71,380 | 17,500 | 333,350 |
| 2020 | | | 244,470 | 71,380 | 17,500 | 333,350 |
Table B - Projected Tonnages arising from Kerbside and Bring Systems
| Type and Year | Durham | Derwentside | Wear Valley | Teesdale | Sedgefield | Easington | Chester-le-Street |
| Kerb | 4,260 | 3,740 | 2,800 | 1,050 | 3,900 | 4,400 | 2,480 |
| Bring | 990 | 860 | 650 | 250 | 900 | 1,020 | 570 |
| 5,250 | 4,600 | 3,450 | 1,300 | 4,800 | 5,420 | 3,050 |
| 2002 | 3,500 | 1,500 | | | | 420 | |
| 2003 | 1,750 | 1,500 | | 400 | 1,600 | 2,000 | |
| 2004 | | 1,600 | 1,150 | 400 | 1,600 | 1,500 | 1,000 |
| 2005 | | | 1,150 | 500 | 1,600 | 1,500 | 1,000 |
| 2006 | | | 1,150 | | | | 1,500 |
Note
It has been assumed that the District Councils will phase in kerbside schemes over a three year period. Some District/Borough Councils have already introduced limited schemes covering parts of their area which will need to be extended both in the range of materials collected and the number of properties served if the targets are to be met. The phasing programme shown will be modified as the Authorities produce their own recycling strategies, it is clear however that they will need to fit within the broad timescale indicated.The actual timing of the introduction of these schemes will be determined by a number of factors such as linkage with their collection contracts, their best value reviews of the service, finance and the availability of suitable bulking up facilities.
