Walsall Metropolitan
Borough Council
Municipal Waste
Management Strategy
Approved by Cabinet
12th May 2004
Report for
Rob Flinter
General Manager
Public Sector Enterprises and Street Care
Walsall Metropolitan Borough Council
3rd Floor Civic Centre
Darwall Street
Walsall
WS1 1DB
Walsall Metropolitan
Borough Council
Municipal Waste
Management Strategy
May 2004
Main Contributors
Alison Leavens
Jonathan Bebb
Issued by
…………………………………………………………
Alison Leavens
Approved by
…………………………………………………………
Jonathan Bebb
Entec UK Limited
Windsor House
Gadbrook Business Centre
Gadbrook Road
Northwich
Cheshire
CW9 7TN
England
Tel: +44 (0) 1606 354800
Fax: +44 (0) 1606 354810
08489
\\enorfs01\data\data\projects\wm-220\05000-9999\08489 walsall
mbc\strategy\ waste strategy 03241 i2.doc
Walsall MBC Waste Management Strategy - May 2004
i
Glossary
BCWMF
Black Country Waste Management Forum
BMW
Biodegradable Municipal Waste
BPEO
Best Practicable Environmental Option
CA site
Civic Amenity site
CFC’s
Chloro-fluoro Carbons
DEFRA
Department of the Environment, Food and Rural Affairs
EC
European Community
EPA 1990
Environmental Protection Act (1990)
ESTO
Environmentally Superior Technology Option
HCFC
Hydro Chloro Fluoro Carbons
LCA
Life-Cycle Assessment
MWI
Municipal Waste Incinerator
PRN
Packaging Recovery Note
PSE
Public Sector Enterprise
PWD
Public Waste Disposal Site
VOC
Volatile Organic Compounds
WCA
Waste Collection Authority
WDA
Waste Disposal Authority
WISARD
Waste Integrated System Assessment for Recovery &
Disposal- the Environment Agency LCA tool.
WMS
Waste Management Strategy
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy - May 2004
ii
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy - May 2004
iii
1.
Executive Summary
1
2.
Background Information
5
2.1
Introduction
5
2.2
Socio-demographic Profile
5
2.2.1
2.2.2
2.2.3
2.2.4
2.2.5
2.2.6
2.2.7
2.2.8
2.3
Location
Regional Geology
Housing and Population
Social Conditions
Car Ownership
Employment
Transport Infrastructure
Relevance of Socio-Demographic Characteristics
Waste Arisings in Walsall MBC
5
6
6
8
8
8
9
9
10
2.3.1
2.3.2
2.3.3
2.3.4
2.3.5
2.3.6
2.4
Municipal Waste Arisings
Household Waste Arisings
Historical Trends
Materials Recycled/Composted
Waste Composition
Future Waste Projections
Current Arrangements for Waste Management in Walsall
MBC
10
11
12
13
14
16
Waste Minimisation & Education
Bring Bank Recycling
Public Waste Disposal Sites (PWD’s)
Kerbside Composting and Recycling
General Waste Collection
Removal of Fly Tipped Wastes
Trade Waste (Commercial and industrial Waste)
Waste Disposal in Walsall
18
19
19
20
20
21
21
21
2.4.1
2.4.2
2.4.3
2.4.4
2.4.5
2.4.6
2.4.7
2.4.8
3.
Waste Management Drivers
18
24
3.1
Introduction
24
3.2
European Legislation
24
3.2.1
3.2.2
3.2.3
The Landfill Directive
Directive on Packaging and Packaging Waste
EC Regulation No 2037/2000 on Substances that Deplete the
Ozone Layer
Waste Incineration Directive (2000/67/EC)
The End of Life Vehicles Directive 2000/53/EC
24
25
3.2.4
3.2.5
Approved by Cabinet on 12th May 2004
25
25
26
Walsall MBC Waste Management Strategy - May 2004
iv
4.
5.
3.2.6
3.2.7
3.3
EU Animal By-products Regulation (EC 1774/2002)
Other European Legislation
National Pressures
27
27
29
3.3.1
3.3.2
3.3.3
3.3.4
3.4
National Waste Policy
Waste Emissions and Trading Bill
Animal By-products Regulations 2003 (SI No. 1482/2003)
Waste Recycling Payments Regulations 1992
Financial Pressures
29
30
31
32
33
3.5
Implications for Walsall
33
Future Options for Waste Disposal Management in
Walsall - BPEO
40
4.1
Introduction
40
4.2
Overview of Options
40
4.3
Assessment of Disposal Options
41
4.3.1
4.3.2
4.3.3
4.3.4
4.4
Economic
Recycling, Recovery and Diversion Targets
Environmental
Summary of Waste Disposal Options
Residual Household Waste Collection
42
44
46
52
55
4.5
Kerbside Collection Options
56
4.6
Integrated Waste Management Options
58
4.7
Walsall’s Preferred Waste Management Option
60
Plans and Policies
62
5.1
Key Achievements to Date
62
5.1.1
5.1.2
5.1.3
5.1.4
5.1.5
5.2
Pre-amble
Waste Recycling and Composting
Public Waste Disposal Sites (PWD’s)
Transfer Station
Black Country Waste Management Forum.
Best Value and Consultation
62
62
62
62
63
64
5.2.1
5.3
Best Value Performance Indicators
Strategic Waste Management Policies & Objectives
64
65
5.3.1
5.3.2
5.3.3
5.3.4
5.3.5
Introduction
Waste Education and Awareness
Stakeholder Consultation
Waste Minimisation and Reuse
Recycling & Composting
65
65
65
66
66
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy - May 2004
v
6.
5.3.6
5.3.7
5.4
Waste Management
Waste Recovery
Implementation Plan to Meet the Targets
66
67
67
5.5
Plan for Other Waste Streams - Non-household Municipal
Waste
69
5.5.1
5.5.2
5.5.3
5.5.4
5.5.5
5.5.6
5.6
Abandoned Vehicles
Construction/ DIY Wastes
Hazardous Waste
Equipment which Contains Low Volumes of PCB’s
Packaging
Waste Electrical and Electronic Equipment Directive
Partnerships
69
69
69
70
70
70
71
5.6.1
5.6.2
The Black Country Waste Management Forum
Community Groups
71
72
Part 3 - Recycling Plan
6.1
Introduction
74
6.2
Essential Legal Requirements
74
6.2.1
6.2.2
6.2.3
Controlled Wastes Expected to be Collected During 2002-2005
Controlled Wastes Expected to be Purchased During 2002-2005
Controlled Waste Expected to be Dealt with by Separating,
Baling or Otherwise Packaging it for the Purposes of Recycling
Arrangements Expected to be made with Waste Disposal
Contractors During 2002-2005
Plant and Equipment Expected to be Provided for Sorting and
Baling Waste During 2002-2005
Estimated Costs and Benefits Resulting from Proposed
Actions Outlined in this Plan During 2002-2005
74
75
Estimated Benefits
Estimated Costs
75
76
6.2.4
6.2.5
6.3
6.3.1
6.3.2
7.
74
75
75
75
75
Part 4 - Landfill Directive: Strategic Plan to Reduce
Landfill
77
7.1
National Diversion Targets
77
7.2
Implications for Walsall
78
7.3
Strategic Plan to Meet the Targets
79
Appendix A – The Waste Hierarchy
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy - May 2004
vi
Table 1.1
Table 1.2
Table 1.3
Figure 2.1
Figure 2.2
Table 2.1
Figure 2.3
Figure 2.4
Table 2.2
Figure 2.5
Table 2.3
Table 2.4
Figure 2.6
Table 2.5
Table 2.6
Figure 2.7
Figure 2.8
Figure 2.9
2004/05 Service Actions and Improvements
Service Improvements and Actions for 2005/06
Service Improvements and Actions for 2006- 2011
Location of Walsall MBC
Population Projections
Housing Types (2001)
Unemployment in Walsall, averaged and by ward
Employment by Sector in 1995
Municipal Waste
Breakdown of Municipal Waste Arisings in Walsall
Household Waste Arisings
Annual Percentage Increases in Waste Arisings, 1998/99 to 2001/02
Trends in Municipal and Household Waste Arisings in Walsall
Recycling and Composting in 2002/03Walsall Average Waste Composition
Seasonal Variation in Walsall Waste Composition 2002-2003 (kg/hh/wk)
Projected Growth in Household Waste Arisings in Walsall
Projected Growth in Household Waste Arisings incorporating waste minimisation
initiatives in Walsall
Table 2.7
Location of Recovery and Disposal Facilities
Figure 2.10 Waste Management and Disposal Routes used for Municipal Waste from Walsall MBC
Table 2.8
Waste Disposal Contracts held by Walsall MBC.
Table 3.1
National Diversion Targets for Biodegradable Municipal Waste
Table 3.2
National Targets for the Recycling and Composting of Household Waste
Table 3.3
National Targets for the Recovery* of Municipal Waste
Table 3.4
Minimum time, temperature and maximum particle sizes required for composting/biogas
treatment of catering waste in England.
Table 3.5
Estimated Tonnages of Waste to be Recycled and Recovered in Walsall to meet the
Performance Standards and National Targets
Table 3.6
Recycling Potential in Walsall MBC in 2002/03
Table 3.7
Potential Quantity of Recyclables Available in Walsall 2002/03
Table 3.8
Potential Quantity of Recyclables Available in Walsall 2002/03 In Relation to different
Participation Rates (Assuming Current Capture Rates)
Table 3.9
Future Capture Rates Potential Quantity of Recyclables Available in Walsall 2002/03 In
Relation to different Participation Rates (Assuming Future Predicted Capture Rates)
Table 3.10
Examples of Recycling Options 2005/2006
Figure 4.1
Projected 20 year averaged gate fees for proposed options
Table 4.1
Indicative Disposal Costs of Options (excluding landfill tax) averaged over 20 year period
at NPV
Table 4.2
Exposure of Options to Landfill Tax
Figure 4.2
Indicative Recycling and Recovery Rates Achieved by Modelled Options
Figure 4.3
Biodegradable Municipal Waste Diversion
Figure 4.4
Global Warming Potential
Figure 4.5
Air Acidification Potential
Figure 4.6
Ozone formation in the lower atmosphere
Figure 4.7
Eutrophication of waters
Figure 4.8
Depletion of Non-renewable resource
Figure 4.9
Emission of Dioxins
Table 4.3
Summary of Economic and Environmental Impacts of Waste Disposal Options
Table 4.4
Household Collection Schemes modelled
Figure 4.10 Average cost per annum of waste collection systems
Figure 4.11 Average cost per tonne of waste collection systems
Table 4.5
Advantages and Disadvantages of Integration of Waste Management Services
Disadvantages
Table 4.6
Integrated Waste Management Options
Table 5.1
Best Value Performance Indicators
Table 5.2
Summarised Action Plan
Table 6.1
Controlled Wastes to be Collected
Table 6.2
Controlled Wastes to be Recycled
Table 7.1
Maximum BMW allowed to be landfilled
Table 7.2
Estimated Tonnages of Biodegradable Waste to be Diverted from Landfill by Walsall
Council - based on the National Average BMW content of 68%
Approved by Cabinet on 12th May 2004
2
3
3
6
7
8
8
9
10
11
12
13
13
14
15
16
17
18
19
22
22
24
30
30
32
34
35
36
37
37
39
42
43
43
45
45
48
49
49
50
51
52
53
56
57
58
59
59
60
64
68
75
75
78
79
Walsall MBC Waste Management Strategy – May 2004
1
1.
Executive Summary
Introduction
This Municipal Waste Management Strategy (WMS) for Walsall sets out the strategic
framework for the management of municipal waste arisings in the Borough over the next 20
years. It has been prepared with reference to Government guidance on the preparation of
municipal waste management strategies1 and Government policy2.
In February 2004 Walsall MBC undertook a public information and consultation exercise on the
content of the draft WMS. The respondents overwhelmingly endorsed all parts of the Council’s
preferred option – a Balanced Recycling, Composting and Recovery Strategy for Municipal
waste.
In delivering this strategy, the Council intends to:
1. Introduce waste reduction, education and awareness programmes
2. Significantly increase rates of recycling and composting over the short to medium term;
3. To sustain and further enhance rate of recycling and composting over the medium to
long term
4. To recover value from waste that is not recycled or composted, over the medium to long
term (and thereby enhance the waste recovery achieved by recycling and composting).
Walsall MBC will review and update the strategy periodically (at least every five years).
Background
In developing this draft Municipal Waste Management Strategy, Walsall MBC considered a
variety of options for the future management of wastes generated by the community. The
chosen way forward is a balance of recycling, composting and waste recovery. This can
achieve all the targets set of Walsall MBC while at the same time delivering future flexibility to
adapt and change to technological developments.
The balance of recycling, composting and recovery aims to deliver a high level of sustainability
through adopting waste management hierarchy and maximising the diversion of waste from
landfill. Waste minimisation and education to reduce waste growth is a primary priority. In
addition recycling and composting would be maximised in the short to medium term. Over the
longer term waste that is not recycled or composted would be treated so as to recover value
(energy) from it.
The central principles of this strategy are to:
1. Introduce waste reduction, education and awareness programmes
2. Significantly increase rates of recycling and composting over the short to medium term;
1
Guidance on Municipal Waste Management Strategies. DETR, March 2001
2
Waste Strategy 2000 England & Wales. DETR 2000
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
2
3. To sustain and further enhance rate of recycling and composting over the medium to
long term
4. To recover value from waste that is not recycled or composted, over the medium to long
term (and thereby enhance the waste recovery achieved by recycling and composting).
5. Deliver points 1 to 4 above in a way that offers Best Value to the community of
Walsall.
Delivering the Strategy
Walsall MBC had embarked on a series of activities designed to deliver improvements in
service provision and initiate the implementation of the draft waste management strategy. The
main actions for the forthcoming years are summarised below.
It should be noted that estimated tonnages stated, in relation to the targets set out for each of the
following tables, are based on projections using a 3% reducing curve for household arisings and
a 2% reducing curve for municipal waste arisings (referenced to audited base data for year
2002/03). This assumes that waste minimisation measures to be employed by the Council are
effective during the time period covered by this municipal waste management strategy.
Year 2004/5- No Statutory Targets.
Service actions and improvements for 2003/04 are set out in Table 1.1. The delivery of the
target of 16% recycling for 2003/04 is assumed to have been achieved (1 st quarter returns report
16% recycling and composting rate). However the Council recognise that this target may only
just be met and therefore significant improvements are required to not only consolidate but
improve upon this target if the 2005/06 are to be met.
Table 1.1
2004/05 Service Actions and Improvements
Service Area
Action
Waste Minimisation and
Education
Appoint waste education officer
Develop waste minimisation plan
Kerbside Collection of
Recyclables
Introduce a kerbside collection for dry-recyclables
Introduce a kerbside paper collection pilot covering 28,000 properties
Kerbside Collection of
Organic Waste
Maintain awareness amongst the 50% of borough residents offered the service
Distribute an additional 19,000 brown bins
Refuse Collection
Ensure service continues to meet Best Value, no additional action required
Public Waste Disposal Sites
Re-tender Contract, to include increased rates of recycling
Waste Recovery and disposal
Examine options for exploiting regional facilities for energy recovery and residual
waste
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
3
Year 2005/06- Statutory Target of achieving 24% (34,272 tonnes) recycling and
composting of household waste.
Service improvements and actions planned for 2005/06 are set out below.
Table 1.2
Service Improvements and Actions for 2005/06
Service area
Action
Waste Minimisation and
Education
Implement waste minimisation plan
Kerbside Collection of
Recyclables
Extend current kerbside collection, exact numbers dependent on success of Defra
funding, LSP funding and/or Council funding
Kerbside Collection of
Organic Waste
Maintain awareness amongst the 50% of borough residents offered the service.
Examine options to extend scheme to include kitchen compostables
Refuse Collection
Ensure service continues to meet Best Value
Household Waste and
Recycling Centres
Initiated new contract
Waste Recovery & Disposal
Recover value from waste that is not recycled or composted through Regional facilities
Explore sustainable options for future long term waste disposal contracts.
Year 2006-2011
Service improvements and actions planned for 2005/06 are set out below.
Table 1.3
Service Improvements and Actions for 2006- 2011
Service area
Action
Waste Strategy
Formal review of Walsall MBC municipal waste strategy during 2008/09
Waste Minimisation and
Education
Continue to implement and monitor waste minimisation and education plans
Kerbside Collection of
Recyclables
Operate enhance recycling service and monitor success
Kerbside Collection of
Organic Waste
Operate enhance recycling service and monitor success
Refuse Collection
Ensure service continues to meet Best Value
Household Waste and
Recycling Centres
Ensure service continues to meet Best Value
Waste Recovery & Disposal
Recover value from waste that is not recycled or composted through Regional facilities
Explore sustainable options for future long term waste disposal contracts.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
4
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
5
2.
Background Information
2.1
Introduction
As a Unitary Authority, Walsall Metropolitan Borough Council (Walsall MBC) has the
responsibility for both waste collection and waste disposal. As a Waste Collection Authority
(WCA) and Waste Disposal Authority (WDA), Walsall MBC has a number of statutory
obligations. These include:

A duty under Section 45 of the Environmental Protection Act 1990 (EPA 1990) to
collect household waste and, if requested, commercial waste within Walsall.

Responsibility under Section 53 of the EPA 1990 to arrange and provide places for
the disposal of waste collected by Walsall MBC within its function as a WDA.

A duty under Section 89 of the EPA 1990 to ensure that relevant land is, so far as
practicable, kept free of litter and refuse.

A requirement under Section 49 of the EPA 1990 to prepare and update plans for
waste recycling.
Before sustainable waste management solutions can be developed for Walsall MBC, a thorough
understanding is needed of how much waste is generated and how it is currently managed.
Other factors such as the socio-demographic characteristics of the area, local and regional
planning policies, and statutory and legislative drivers will determine the range of suitable waste
management solutions. This Chapter summarises the background conditions and potential
future developments that will influence the management of municipal waste in Walsall.
2.2
Socio-demographic Profile
2.2.1
Location
Walsall MBC encompasses an area of 9970 hectares (38.5 square miles) and, unusually for the
West Midlands, half the land area is open use and over a fifth is used for agriculture (Figure
2.1). Within this Urban/semi-rural spilt are the five towns of Aldridge, Brownhills, Darlaston,
Bloxwich and Willenhall. The Borough is one of contrasts, as it also has large industrial areas to
the west, and 40% of the Council area comes within the top 10% of the most deprived areas of
the Country.
The Borough also contains an extensive area of green belt along its north eastern margin. This
area contains several areas of importance for nature conservation as well as wildlife corridors
and heritage trails. Other areas of importance for conservation are located throughout the
Borough although these are typically of limited geographical extent.
Walsall MBC area is bordered by the adjacent Local Authority areas of Wolverhampton,
Sandwell and Birmingham (Figure 2.1) which together comprise the Black Country.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
6
Figure 2.1
Location of Walsall MBC
2.2.2
Regional Geology
The geology of the West Midlands region is dominated by sedimentary deposits including the
Coal Measures (Middle Coal Measures in the vicinity of Walsall), Keuper Marl and Sandstone.
Igneous rocks although not widely found, outcrop in isolated exposures at places throughout
region. Some of these are commercially extracted.
Historically economic reserves of coal, clay, marl, sandstone, sand and gravel have been
exploited to support industrial development in the West Midlands. The residual voids and
quarry’s have been used extensively for the landfilling of wastes although limited unused
capacity now remains in the Region.
2.2.3
Housing and Population
The official Walsall MBC figure for population in 2003 is 253,345. The population of Walsall
in 1991 was estimated at 263,400 and, as with other areas of the West Midlands, the population
has been subject to decline. Based on 1996 projections, the population was expected to be
around 252,800 in 2006, a decrease of 4% in 10 years. However the reported 2003 figure is not
far off this, indicating a greater population decrease than expected.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
7
Figure 2.2
Population Projections
Walsall Population Projection 1996 Based Projections
265.00
Thousands
260.00
255.00
250.00
245.00
240.00
235.00
230.00
1996 (base)
2001
2006
2011
2016
2021
Year
The community of Walsall has solid multi-cultural characteristics with 13.6% of the population
comprising ethnic minorities. The largest ethnic groups are people of Indian and Pakistani
origin, comprising 5.3% and 3.8% respectively.
There are approximately 105,329 dwellings in Walsall giving an average occupancy level of
approximately 2.4 persons per household.
Despite the fall in the Borough’s overall population the number of households is anticipated to
rise. A trend of increasing single and lone parent household occupancy is expected to increase
with time.
The housing stock in Walsall is dominated by the provision of semi-detached and terraced
properties. The revised deposit draft Unitary Development Plan 20023 required that new
housing stock will continue to be provided despite a fall in population and there are a number of
developments that are facilitating this. Projections contained within this plan suggests the
provision of an additional 10,100 dwellings between 2001 and 2011 (approximately 505
per year).
The type of property has a significant impact on the quantities and types of waste generated.
Generally detached and semi-detached dwellings have gardens and as a consequence can
generate significant amounts of green wastes during the growing season. The distribution of
housing types in Walsall is shown in Table 2.1.
3
Walsall Metropolitan Borough Council (2002). Revised Deposit Draft Unitary Development Plan
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
8
Table 2.1
Housing Types (2001)
Type of Dwelling
Number of Dwellings
% of Dwellings in Walsall
Detached House
19,045
18
Semi-detached House
45,978
44
Terrace House
32,230
32
Flats
6,076
6
2.2.4
Social Conditions
Walsall is a mixture of a more affluent population in the east, together with an area of social
depravation to the west. Five percent of Walsall’s population was claiming unemployment
benefit in March 2002, compared to a national average across the United Kingdom of 3.3%
(figure 2.3).
Figure 2.3
Unemployment in Walsall, averaged and by ward
Unemployment by Ward
14.0
% unemployed
12.0
10.0
Walsall Average
Unemployment
8.0
6.0
4.0
2.0
Al Al d
dr
r
id idg
ge
e
N Ce
o
Be rth ntra
nt
an l a
nd
le
d
y
an Wa S o
ls
d
al uth
D
l
ar
la W o
s
od
Bi
rc ton
hi
lls Nor
Le th
am
Bl ore
Bl
a
ox ke
na
w
ic
ll
Bl
ox h E
w
i c ast
h
W
es
Br
D
o
w t
ar
nh
la
s
i
H
at ton ll s
he
S
rto ou
t
n
R h
us
ha
Pa
l
dd l
oc
Pa k
l fr
ey
Pe
ls
Ph a ll
ea
se
y
St
Pl
ec
M
k
at
t
Sh hew
's
or
tH
ea
W
St th
r
i ll
en ee
t
h
W
al l y
i ll
en l No
ha rth
ll
So
ut
h
0.0
Ward
2.2.5
Car Ownership
Car ownership within Walsall MBC is increasing with over 63% of the Boroughs population
owning one or more cars. In 1991 17.7% of the population owned 2 or more cars.
2.2.6
Employment
Levels of unemployment in Walsall (6.9%) have fallen since 1999 although these continue to
remain high compared to the national average (5.0%). Particular groups adversely affected by
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
9
acute unemployment include ethnic minorities, young people and men in general. Details of
employees by sector are shown in Figure 2.4.
Figure 2.4
Employment by Sector in 1995
Employment by Sector
Percentage of workforce
40
35
30
25
20
15
10
5
0
Agriculture
Utilities
M anufacturing
Construction
Sector
Distribution,
hotels and
restaurants
Transport and
communications
Commerce
Public
Other services
2.2.7
Transport Infrastructure
The Borough is well served with communications being on the a network of motorway links,
including the M6 towards Birmingham and London, the M5 towards the South West and with
the M40, M42 and M54 also in close reach. These motorways are primarily fed by dual
carriage A class roads. Many of the main primary roads and motorways are congested.
Birmingham international airport (with the Eurohub passenger terminal) is within 50 minutes
travel by car and 40 minutes by train, and provides international access.
2.2.8
Relevance of Socio-Demographic Characteristics
The implications of these socio-economic characteristics for developing a long-term waste
management strategy are summarised below:

The historical trends and future projections of population decline and increases in
household numbers, along with a trend towards smaller households and single
occupancy, have important implications on future household waste arisings in
Walsall.

Walsall comprises a predominately urban area which means that the majority of
household waste arisings are concentrated in a defined area. This should make
waste collection and kerbside collection systems comparatively efficient.

A high number of multi-storey flats will impact on waste collection and recycling
practices in some areas.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
10

The nature of the housing and the socio economic status of the occupants dictates
the compositional analysis of the waste. This is important in the implementation of
segregation schemes for recyclates.

Unemployment levels in the Borough suggest that the additional social benefits
arising from the development of waste management infrastructure, in terms of job
creation, is an area of importance for Walsall.
2.3
Waste Arisings in Walsall MBC
2.3.1
Municipal Waste Arisings
For the period 2002/2003 Walsall produced 150,221 tonnes of municipal waste. This equates to
a municipal waste generation rate of approximately 593 kg per person per year. Municipal
waste comprises the categories listed in Table 2.2. A breakdown of these arisings is shown in
Figure 2.5. This shows that the predominate source of municipal waste within the Borough is
household waste that is collected solely for the purpose of disposal. However significant
quantities of waste are collected by the Council for disposal from trade and industrial premises.
Table 2.2
Municipal Waste
Categories

Household waste collected from households for disposal

Bulky and Garden waste collections from households for disposal or recycling

Separate collections from households of other wastes for disposal or recycling

Recyclate collected from households

Civic Amenity site wastes for disposal

Civic Amenity wastes for recycling

Bring site wastes for recycling (bottle banks etc.)

Clearance of fly tipped Wastes

Municipal Parks and gardens waste

Street Cleansing Wastes and litter

Commercial and industrial waste collected by Local Authorities

Waste from schools

Gully waste
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
11
Figure 2.5
Breakdown of Municipal Waste Arisings in Walsall
Municipal Waste Aisings 2002/03
10%
Collected
H/hold
3%
CA
10%
Recycled &
composted
13%
64%
Drainage &
Rubble
Trade
2.3.2
Household Waste Arisings
Household waste can be defined as all municipal waste excluding rubble, commercial and
industrial wastes, gulley and fly tipped wastes, collected by a Local Authority. Household
waste therefore includes all waste and recyclables collected directly from domestic properties,
as well as waste received at the civic amenity sites and at bring facilities.
In 2002/2003 the total quantity of household waste handled by Walsall MBC amounted to
131,323 tonnes, of which 14,962 tonnes was recycled or composted, generating a combined
recycling and composting rate of 11.4%. Household waste arisings in Walsall equate to an
average of 24.9 kg per household per week, 1.29 tonnes per household per year, or 518 kg per
person per year. The national average household waste arisings for 2001/02 was approximately
522 kg per person per year as reported by Defra .
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
12
Table 2.3
Household Waste Arisings
Household Waste Category
Collection round waste
Street bins & sweepings
Household Waste Recycling Centre
(disposal)
Kerbside Composting
Bank Recyclables
Recycling and composting at the
Household Waste Recycling Centre
TOTAL Household Waste
2001/02 Tonnage
2002/03 Tonnage
96,4111
94,8151
3217
15002
20,0002
20,0002
5,530
6,152
1,5713
1,1813
6,346
7,629
133,2491
131,232
1 calculated
figure
2 estimated by council officers
3 estimation based on recycling figures
2.3.3
Historical Trends
Figure 2.6 illustrates the fluctuations in household and municipal waste arisings over the last six
years. It can be seen that there was a significant rise in municipal waste arisings between
1998/99 and 1999/00 (14.6%), and this rise is wholly attributable to the increase in household
waste arisings. Between 1999/00 and 2001/02 a steady growth in household waste was
observed. This increase has been reversed between 2001/02 and 2002/03 with a slight decrease
in household arisings of 1.4%. Averaged over the past five years the significant increases in
household arisings evens out to give an average annual increase of 3.84%, and only 1.9% if only
the last three years are considered.
When attempting to establish trends it is important that data are compared consistently year on
year, and that comparisons are made like for like. There is clearly a lot of movement in
Walsall’s’ arisings figures, with large increase in either household waste arisings and even a
small decrease in overall municipal waste arisings for some years. The large increase in
household waste arisings, and consequently municipal arisings as well, in 1999/2000 was due to
a significant rise in the collected household waste stream (bin collection). However, as certain
parts of the waste stream are not recorded separately, for example civic amenity wastes and
bulky collections, it is not possible to conclude exactly where this substantial increase occurred,
and consequently it is not possible to hypothesise explanations as to why such a rise occurred.
As historic data is not recorded in enough detail to research explanations for such movements,
year on year comparisons can not be made with confidence. However it is clearly apparent that
the overall trend for waste arisings is one of a positive increase, and for this strategy average
figures for the period are used
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
13
Table 2.4
Annual Percentage Increases in Waste Arisings, 1998/99 to 2001/02
Year
% increase in Household
Waste Arisings*
% increase in Municipal
Waste arisings*
1998/99
-1.08
-2.10
1999/2000
14.63
9.55
2000/01
1.5
-0.93
2001/02
5.61
2.13
2002/03
-1.4
0.58
* Compared to previous year
.
Figure 2.6
Trends in Municipal and Household Waste Arisings in Walsall
Walsall trends since 1997
160,000
Arisings (tonnes)
150,000
140,000
130,000
120,000
Household
Municipal
110,000
100,000
90,000
1997/98
1998/99
1999/00
2000/01
2001/02
2002/03
Year
2.3.4
Materials Recycled/Composted
Walsall MBC currently recycles and composts 11.4% of household waste through a
combination of kerbside collection, recycling centres (bring banks), and recycling facilities at
the two civic amenity sites. Table 2.5 shows the source of the collected recyclables.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
14
Table 2.5
Recycling and Composting in 2002/03Recycling Scheme
2002/03
Tonnage
Recycling/composting
Rate (% of Household
Waste)
Kerbside Collection (green)
6,152
4.68
Recycling Centres (Bring Banks)
2,107*
1.60
Civic Amenity Site Recycling
6,673**
5.08
TOTAL
14,962
11.4
*50% of the total dry recyclables recovered in Walsall
**CA green waste, plus 50% of the dry recyclables recovered.
2.3.5
Waste Composition
Walsall MBC commissioned Entec to undertake a series of household waste composition
studies during the period July 2002 to April 2003. Four compositional studies were conducted
over the course of a year, designed to incorporate seasonal variation effects. Each study
comprised sorts of waste samples for two areas:

Area 1. Pelsall, Sheffield and Bloxwich. These areas were provided with a brown bin
for the segregated collection of garden waste.

Area 2. Walsall and Darlaston. These areas do not have a separate brown bin and
garden waste is consequently collected in the residual waste for disposal.
The same areas where used for all four surveys. The research was undertaken to identify,
1. The performance of Walsall MBC brown bin scheme
2. The attitudes of households within Walsall MBC on issues regarding recycling,
composting and waste management
3. The composition of waste within Walsall MBC, illustrating seasonal variations.
A summary report4 details the findings of each waste composition survey and the household
attitude survey. An overview of the waste composition survey results is discussed briefly.
When the survey was undertaken, there were no kerbside collections for dry recyclables.
Table 2.6 shows the average waste composition in Walsall during the period 2002/3. It is
important to note that this composition relates to the material collected in the residual bins of
both areas. The figures do not take account of the tonnage of green waste currently collected
through the brown bin scheme. Nor do the figures take into account other household waste
arisings such as those materials collected at bring banks or at the Household Waste and
Recycling Centres. These arisings have to be accounted for when the biodegradable diversion
rates and tonnages have to be calculated, and this material is presented in Chapter 7.
The main materials are Paper and Card (29%), Putrescibles (19%) and Fines (12%).
The proportion of fines is higher than may typically be expected when compared to a national
average. This may be a reflection of the sampling and sorting methodology used. Overall,
although the waste composition of Walsall is marginally different to the National average,
4
Entec (2003) Summary Waste Composition and Household Attitude Survey. September 2003. Report
07289/04/WH/03206.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
15
(as expected given that the demographics of Walsall are not representative of the National
average); the relative proportions of each of the 13 material categories are similar. For example,
the dominant material categories are paper and card and putrescibles. The proportions of metal
and glass are lower than the national average although this is probably a reflection of the high
proportion of fines in the Walsall samples.
The biodegradable content of the waste stream can be estimated using the definitions provided
in Waste Strategy 2000, where biodegradable percentages are assigned to material types such as
textiles and miscellaneous combustibles. Applying this approach, the biodegradable fraction is
estimated to account for 61 % of the municipal waste stream in Walsall. The packaging content
of the waste stream is estimated at 27 %.
Although several of the areas from which waste was collected for analysis had accessible bring
banks close by, these are believed to have had a negligible impact on the quantities of
potentially recyclable material present in the waste stream. The results of the survey show that
up to 41% (or 6.9 kg/hh/wk) of the waste analysed could potentially be recycled (depending on
the materials targeted, participation rates and levels of contamination). This is consistent with
the low level of recycling achieved within the Borough at this time. Parallel reports5 describe in
detail the different amounts of material available in the residual waste and amounts of material
practically recoverable from different kerbside collections.
Table 2.6
Walsall Average Waste Composition
Category
Assay (%)
Weight (Kg/hh/wk)
Paper and Card
28.8%
4.90
Plastic Film
6.0%
1.03
Dense Plastic
6.6%
1.12
Textiles
3.5%
0.60
Miscellaneous Combustibles
9.0%
1.53
Miscellaneous Non-Combustibles
2.9%
0.49
Glass
7.0%
1.18
Ferrous Metal
3.8%
0.65
Non-Ferrous Metal
1.2%
0.20
Putrescible
19.0%
3.28
HHW*
0.6%
0.10
Fines (<20mm)
11.6%
1.99
All Categories
100.0%
17.10
5
Entec (2003) Summary Waste Composition and Household Attitude Survey. September 2003. Report
07289/04/WH/03206.
Entec (2003) Short term recycling options. August 2003. Report 08489/04/WH/03144.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
16
*HHW – Household Hazardous Waste (There is currently no definition of HHW. However, we have
included the following items within this classification: Aerosols, Paints and Oils, Batteries and Other HHW)
Figure 2.7 illustrates the seasonal variation in waste composition in Walsall throughout the 12month monitoring period. Paper and Card is consistently the dominant material. There appears
to be an interesting pattern with paper and card declining in weight throughout the year.
The largest amount of putrescibles is noticed in the autumn period, the lowest in the winter
period. Interestingly more glass was present in the autumn period. Other materials remained
relatively consistent throughout the 12-month period and appeared unaffected by seasonal
variation.
Figure 2.7
Seasonal Variation in Walsall Waste Composition 2002-2003 (kg/hh/wk)
6
Summer
Autumn
Winter
Spring
Weight (kg/hh/wk)
5
4
3
2
1
)
s
(<
20
m
m
H
H
W
ne
Fi
s
M
on
et
-fe
al
rro
us
M
et
al
Pu
tre
sc
ib
le
ss
rro
u
G
la
Fe
es
M
is
c.
N
N
bu
st
st
-C
om
on
c.
C
om
bu
Te
is
M
ib
ib
es
s
xt
ile
ic
as
t
Pl
Fi
D
en
se
tic
as
Pl
Pa
pe
ra
nd
C
ar
d
lm
0
2.3.6
Future Waste Projections
A review of the waste arising data for the last five years (1998-2002) clearly demonstrates the
difficulties with trend evaluation within the data. Table 2.4 presents the annual percentage
increase in waste arisings year on year since 1998/99.
Population change and housing development can be used to predict future waste arisings. Whilst
the population of Walsall has declined in the last six years there has still been an increase in
household waste arisings, with growth rates averaging 1.9% pa over the last three years.
Walsall’s Household and Municipal waste arisings are increasing at a rate below the National
Average, quoted in Waste Strategy 2000. This may be representative of the slight population
decrease within the borough.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
17
Figure 2.8 shows the sensitivity of future waste arisings growth to a range of annual growth
rates between 1% and 6%. This clearly shows the deleterious impact of high rates of waste
growth over a sustained period of time. For example if the household waste arisings were to
increase at a rate of 5% pa then waste arisings in Walsall will double within 15 years and treble
within 22 years.
Figure 2.8
Projected Growth in Household Waste Arisings in Walsall
500,000
450,000
400,000
350,000
300,000
250,000
200,000
150,000
100,000
50,000
0
1%pa
2%pa
3%pa
4%pa
5%pa
6%pa
20
01
/0
2
20
03
/0
4
20
05
/0
6
20
07
/0
8
20
09
/1
0
20
11
/1
2
20
13
/1
4
20
15
/1
6
20
17
/1
8
20
19
/2
0
20
21
/2
2
20
23
/2
4
Tonnes per year of household
waste
Household Waste Arisings
Year
For the purposes of this strategy it has been assumed that there will be no significant change in
the population over the period of the strategy. This is not an unreasonable assumption as
population decline has not been as marked as previously predicted. Even so, the overall total
housing stock is expected to increase due to the trend towards smaller households and single
occupancy. One of the major influential factors inhibiting the reduction in the growth rate of
waste is this trend (e.g. each household receives the same “junk mail” irrespective of the
number of occupiers). The number of households in Walsall is predicted to increase by 0.4%
per annum until 2011, with the average household size predicted to decrease as well. As this
rate of increase is slightly less than the rates achieved over the last couple of years, it is
reasonable to assume that, providing no significant changes occur in lifestyle habits, municipal
waste arisings will continue to increase at similar rates to that experienced in the last two to
three years (in the range of 2 to 3 percent).
A commitment towards waste minimisation and reducing waste growth should be a core
principle of the Walsall Waste Management Strategy. Figure 2.9 illustrates the effect of waste
minimisation on waste arisings. In this figure the following assumptions are made concerning
waste growth for the 3% reducing (minimisation) curve:

Starting at a rate of 3 % per annum until 2005/06

Waste growth reducing over time from 2005/06 to 1% per annum by 2016/17, and

Zero growth by achieved by 2023/24.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
18
This curve is presented for comparative purposes against a sustained 3% and 2% growth curve.
The comparison of these curves clearly shows the impact of waste minimisation on waste
arisings over the medium to long term.
Figure 2.9
Projected Growth in Household Waste Arisings incorporating waste minimisation
initiatives in Walsall
300,000
250,000
200,000
150,000
2%pa
3%pa
100,000
3% reducing
50,000
0
20
01
/0
2
20
03
/0
4
20
05
/0
6
20
07
/0
8
20
09
/1
0
20
11
/1
2
20
13
/1
4
20
15
/1
6
20
17
/1
8
20
19
/2
0
20
21
/2
2
20
23
/2
4
Tonnes per year of household waste
Projected household waste arisings
Year
2.4
Current Arrangements for Waste Management in
Walsall MBC
2.4.1
Waste Minimisation & Education
Walsall MBC has historically initiated several schemes to promote waste minimisation and
provide practical steps to assist the population in addressing the issue of waste growth. Prior to
1998 an active programme of waste education was taken to the all schools within the Borough.
Post 1998 the scheme has been scaled down, with waste education taken to approximately
20 schools per year (out of a total of 120).
Walsall MBC initiated a new waste minimisation programme with the distribution of a leaflet to
all properties within the borough in April 2003. The leaflet entitled “Refuse Collection and
Waste Minimisation Service Standard” detailed the existing policy on sidewaste and closed lids.
Residents were informed that if side waste and unclosed bins were put out then the bin &
associated materials would not be collected. The strict enforcement of this policy has led to a
reduction the number of side waste and open bins.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
19
Walsall MBC also promotes a local charitable organisation called Carpenters Shop which
collects unwanted household furniture, and sells them at low cost to people in need within the
local community. This project makes a significant contribution to waste minimisation in the
Borough as the unwanted goods are reused within the community and do not enter the waste
stream for collection and disposal by the Council.
2.4.2
Bring Bank Recycling
There is a network of local bringing sites equipped with banks for the recycling of various
materials and these are distributed throughout the Walsall area. The majority of bring sites
contain multiple sets of banks for the collection of glass bottles, and cans. As many sites are
subject to acts of vandalism and arson only a limited number of sites can be equipped with
paper and textile banks.
Bring sites are located at accessible and central areas in the Borough including car parks,
shopping centres, leisure centres and schools. There are a total of 62 sites.
Bring site provision amounts to an average of 1 bring bank (site) per 4086 head of population
which equates to 1:1699 households. Without the coverage provided by a kerbside collection of
recyclables in the Borough, community access to recycling facilities is considered to be limited.
The recycling rate achieved by the bring bank network is low (about 2%) with the majority of
dry recyclables being collected at the two civic amenity sites.
2.4.3
Public Waste Disposal Sites (PWD’s)
There are two public waste disposal sites in Walsall, one at Fryers Road, Leamore, the other
situated in Merchants Way, Aldridge. The management and transportation aspects have been
contracted out to Biffa Waste Service.
The sites are of a split level design and have a separate area for the deposit of recyclables (glass,
paper, cans, textiles, batteries etc.) and currently accepts household waste, garden waste, DIY
waste, bulky items and white goods and hazardous household waste. A number of roll-on rolloff skips are available for the deposit of waste, with separate skips for rubble, garden (green)
waste, scrap metal, wood and general waste. The materials are taken to the sites listed in
Table 2.7 for recovery or disposal:
Table 2.7
Location of Recovery and Disposal Facilities
Waste Category
Arrangement
Disposal/Recovery
Green Waste
Jack Moody, Holly Bush Garden
Centre, Wolverhampton
Recovery (composting)
Rubble
Cory Environmental (Vigo Utopia)
Recovery
Cardboard
Kappa
Recovery
Scrap Metal
Green Lane Motor Salvage
Recovery
Wood
Armstong Environment
Recovery
General
Biffa Waste Services
Disposal
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
20
Biffa is responsible for the transportation of green waste to Moody’s, rubble and cardboard to
Cory’s and the general waste off to the various contracted landfill disposal sites. The scrap
metal and wood are collected by the appropriate contractors, the arrangement being to provide
collection service within 24 hours of notification.
The sites are open at the following times, only closing on Christmas, Boxing and
New Years Day.
Summer (1st March - 31th Oct)
Winter (1st Nov - 28(29)th Feb)
8am - 8pm Monday- Friday
8am - 6pm Monday- Friday
8am - 4:30pm Saturday & Sunday
8am - 4:30pm Saturday & Sunday
Access restrictions apply, with a permanent 6 ft 6” barrier across the site entrance. Provision is
made for high passenger vehicles.
The civic amenity sites do not accept commercial and industrial wastes, except those received
under contract by the transfer station at Fryers Road.
2.4.4
Kerbside Composting and Recycling
In 2002/03 22,000 properties were provided with a bin for garden green waste under the
“brown bin” scheme for the full year. In that year a further 11,000 properties were provided
with the service for 6 months. This year, 2003/04, sees the further roll-out of brown bins to an
additional 19,000 properties, taking the overall scheme availability to 52,000 properties, just
under half of the households in Walsall. The remaining 50% of households have been identified
as being predominantly flats or terraced housing, with limited garden, yard or storage areas, and
thus not necessarily ideally suited to a brown bin collection.
There is currently no kerbside collection for dry recyclables within Walsall. However, a pilot
scheme for the collection of newspapers and magazines will be undertaken between January and
March 2004, and this pilot may be extended until December 2006.
2.4.5
General Waste Collection
Refuse collection services are provided by the council’s in-house provider, who operate out of
depots at North Walsall and Aldridge.
Refuse collection
Of the 150,221 tonnes of municipal waste collected by Walsall MBC in 2002/03, approximately
94,815 tonnes was collected directly from domestic properties. This waste was collected from
101,350 households using a kerbside wheelie bin collection. Properties are serviced weekly with
some variation due to public holidays.
Multi-occupancy properties, such as blocks of flats, are provided with large wheeled bins into
which waste is delivered from the householder by chute. These properties are serviced by a mix
of RCV’s and bulk loading vehicles.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
21
Bulky Household Waste Collection
Walsall operates a bulky waste collection service which is available to the residents of the
Borough. This service only collects such items that can safely be loaded onto flat-beds and thus
there is a limitation to the type of items this collection round can accept. If items are in good
condition, arrangements can be made with the “The Carpenters Shop” or Community Transport
who will collect and sell the items at low cost to people in need in the local community.
2.4.6
Removal of Fly Tipped Wastes
The occurrence of fly tipped wastes within the authority is a major environmental issue for the
community. The amount of waste collected annually is comparatively modest but causes
significant impact on those who encounter it. Fly tipped waste is generally removed as part of
the street cleaning activities.
2.4.7
Trade Waste (Commercial and industrial Waste)
Walsall MBC provides a chargeable service for the collection and disposal of trade and
industrial waste from commercial properties located in the Borough through the services offered
by the in-house provider.
Industrial and commercial premises are generally serviced by bulk loading and refuse collection
vehicles on dedicated rounds.
In 2001/2002, 15,098 tonnes of commercial and trade waste were collected by Walsall MBC.
2.4.8
Waste Disposal in Walsall
Transfer facilities
Walsall MBC has a duty to manage and dispose of the 150,221 tonnes of municipal waste
collected in the Borough. Most of the waste is transported to the Fryers Road transfer station to
maximise the utilisation of the refuse collection vehicles by reducing the distance that they have
to travel when loaded. In this way they can spend more effective time collecting waste from
households. However some direct delivery is made, with the PSE having a target of 15, 000
tonnes to be delivered in this manner. In 2002/03 the PSE achieved 9, 000 tonnes delivered
directly.
At the transfer station the waste is deposited by the collection vehicle and this is then transferred
by mechanical front end shovel loader into bulk transport containers which transport the waste
to its final disposal point. The bulk compaction transporters can carry up to 40 tonnes per load
as opposed to the average 7 tonne per load for a conventional refuse collection vehicle. This
method of transportation management reduces the impact of waste haulage on the road network
which is already heavily utilised in the Walsall area by other traffic.
Waste Disposal
The majority of waste collected in Walsall is disposed of via landfill. Small quantities (8,741
tonnes delivered in 2002/2003) have also been combusted for energy recovery at the
MES Energy from Waste facility located in Wolverhampton.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
22
The recycling and composting that takes place by means of the kerbside collection and bring
bank schemes results in a modest recycling rate of 11.4 % for household waste. The Council is
on target to achieve 16% for 2003/04
Figure 2.10 provides a breakdown of the current methods of waste management used by
Walsall MBC
Figure 2.10
Waste Management and Disposal Routes used for Municipal Waste from Walsall MBC
Disposal Routes for MSW in Walsall
Landfill
Composting
Recycle
Energy from Waste
6%
5%
7%
82%
Disposal Contracts
There are currently 5 contracts for the disposal of the municipal waste arising from
Walsall MBC. All of these contracts are short term and terminate either at the end of
March 2003/04 and 2005. Table 2.8 details the contracts.
Table 2.8
Waste Disposal Contracts held by Walsall MBC.
Operator
Type of Disposal
Termination
Cory Environmental
Landfill
2006/07
Landfill
31-Mar-04
Landfill/incineration
2006/07
(household)
Cory Environmental
(rubble- Vigo Utopia)
Biffa Waste
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
23
Cleansing Services Group
Landfill
2006/07
Edwin Richards
Landfill
31-Mar-04
Moody
Composting (green waste)
31-Mar-07 or until 75,000
tonnes has been delivered
Landfill tax (currently £14 per tonne) applies to all landfilled wastes with the exception of rubble handled by
Cory Environmental.
Edwin Richards, Wilnecote and Cory Waste is bulk transported from Fryers Road transfer station and attracts a
transport fee.
Biffa Waste is partly delivered direct by the P.S.E. and transported via Fryers Road transfer station .
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
24
3.
Waste Management Drivers
3.1
Introduction
This Chapter provides an overview of the policy framework and key statutory requirements that
impact on the development of future waste management provisions. The fulfilment of statutory
and non-statutory requirements will represent an important consideration in the decision making
process undertaken by Walsall MBC and the decisions concerning these will impact on the
scope, duration, flexibility, and costs of the future contract(s) for waste management that are let
by the Council.
The main drivers that are encouraging local authorities to review their waste management
systems can be grouped into three categories: European legislation and policy, National
legislation and policy, and Financial. These will have a profound impact on the available waste
disposal routes, waste management capacity, waste collection methods, and overall economics
of waste management.
3.2
European Legislation
3.2.1
The Landfill Directive
One of the most notable pressures at present is the Landfill Directive (Council Directive
1999/31/EC on the Landfill of Waste) which was agreed in Europe in 1999 and has now been
transposed into UK law. This seeks to prevent or reduce possible negative environmental
effects from the landfilling of waste by introducing uniform standards throughout the EU. The
Directive sets ambitious targets for the reduction of biodegradable municipal waste (BMW) that
is disposed of to landfill (Table 3.1).
Table 3.1
National Diversion Targets for Biodegradable Municipal Waste

By 2010 biodegradable municipal waste (BMW) must be reduced to 75% of the total BMW (by weight)
produced in 1995.

By 2013 BMW must be reduced to 50% of the total BMW (by weight) produced in 1995.

By 2020 BMW must be reduced to 35% of the total BMW (by weight) produced in 1995.
It is widely accepted that the introduction of such measures will result in the most fundamental
changes in waste management practices experienced in the UK. The Landfill Directive and the
Council’s strategic plans to reduce the amount of biodegradable waste disposed of to landfill is
considered in more detail in Chapter 7.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
25
3.2.2
Directive on Packaging and Packaging Waste
The Directive on Packaging and Packaging Waste (94/62/EEC) was implemented in England by
two pieces of legislation: the Producer Responsibility Obligations (Packaging Waste)
Regulations 1997, and the Packaging (Essential Requirements) Regulations 1998.
The first of these sets targets for the recycling of packaging waste, placing the responsibility
upon those in the packaging chain. Packaging also includes the boxes and pallets used in the
delivery systems. All obligated companies have to arrange for the recycling or recovery of a
proportion of the packaging they handle. The EU has set 2006 targets of 60-75% overall
recovery and 55-70% overall recycling, with material-specific recycling targets for glass of
60%, paper and board 55%, metals 50%, and plastics 20%. This may have the effect of
encouraging producers to fund more recycling of packaging in household waste, and could have
an effect on prices of materials or infrastructure. However, despite increasing targets there has
been little direct effect on the recycling of packaging materials in Walsall from these
regulations, as any funding put into the system by producers has not yet filtered down to the
majority of local authorities.
The responsibility for proof of recovery falls on those businesses handling packaging and as
such into the commercial and industrial sector. Proof of compliance is achieved and proved by
the issue of the Packaging Recovery Note (PRN). PRN‘s can only be issued by an accredited
reprocessor.
Accredited reprocessors are approved by the Environment Agency and include energy from
waste facilities, which accept domestic waste. PRN's from these facilities can be issued for 19%
of the household waste throughput of the plant. PRN’s can be a source of income having an
intrinsic and tradable value. PRN’s generated from energy recovery are currently worth
between £8 and £10 per tonne.
3.2.3
EC Regulation No 2037/2000 on Substances that Deplete the
Ozone Layer
Otherwise known as the Ozone Depleting Substances Regulation, it requires Member States to
remove ozone depleting substances (ODS) (including CFCs and HCFCs) from refrigeration
equipment before such appliances are scrapped. This applies to domestic appliances from
1 January 2002.
Facilities for delivering the requirements of the Regulation are currently being introduced in the
UK, so like the majority of local Walsall MBC has been forced to make arrangements for the
storage of fridges and freezers until suitable facilities becomes operational.
3.2.4
Waste Incineration Directive (2000/67/EC)
In 1989 two Council Directives (89/369/EEC and 89/429/EEC) were adopted to control
emissions of certain pollutants from municipal waste incinerators (MWIs). These have made a
considerable contribution to the reduction of emissions, however, their scope was limited to
municipal waste. To fill the gaps between these Directives and the Hazardous Waste
Incineration Directive (Council Directive 94/67/EC) a Waste Incineration Directive has been
adopted.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
26
The new Waste Incineration Directive addresses municipal and hazardous wastes excluded from
the scope of 94/67/EC, such as waste oil, solvents and clinical waste, as well as other nonhazardous wastes. It also addressed the co-incineration of wastes excluded from the scope of
94/67/EC.
The requirements of the new Waste Incineration Directive have been developed to reflect the
ability of incineration plants achieve high standards of emission control to more cost effectively
than previously.
The Directive seeks to integrate the technical progress made in recent years in the control of
incineration emissions and extend the scope of existing EC measures to combat the pollution of
air, water and land caused by the incineration of wastes not covered by the Hazardous Waste
Incineration Directive (HWID).
It will contribute to the protection of human health and the environment by achieving its key
objectives which include:

To reduce substantially emissions of several key pollutants to air and control
releases to water and land

To provide a major contribution to the achievement of the target in the Fifth
Environment Action Programme to reduce emissions of dioxins and furans from
known sources by 90% between 1985 and 2005

To contribute to a reduction in releases in heavy metals in accordance with the Fifth
Environment Action Programme objective of eliminating exceedances of critical
loads and levels

To provide a coherent methodology for the regulation and operation of nonhazardous waste incineration and co-incineration.
3.2.5
The End of Life Vehicles Directive 2000/53/EC
This directive:

requires that end of life vehicles can only be treated by authorised dismantlers or
shredders who must meet tightened environmental standards

requires vehicle producers, dismantlers, and shredders (“economic operators”) to
establish adequate systems for the collection of end of life vehicles

states that owners must be able to return their vehicles into these systems free of
charge from 2007

requires producers to pay all or a significant part of the costs of take-back and
treatment from January 2007

sets rising re-use, recycling, and recovery targets which must be met by economic
operators by January 2006 and 2015

restricts the use of heavy metals in new vehicles from July 2003.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
27
3.2.6
EU Animal By-products Regulation (EC 1774/2002)
The regulation came into force 1st May 2003 and enforcing legislation in England was effective
as of 1st July 2003. The Regulation categorises waste into 3 risk areas:
Category 1 – Very high risk animal by-products including carcasses infected (or
suspected to be infected) with BSE, catering waste from means of transport operating
internationally, animals used in experiments, wild animals when suspected of being
infected with a communicable disease. All Category 1 animal by-products (or mixtures
containing Category 1 animal by-products) must be directly disposed of by incineration
or to landfill after heat treatment.
Category 2 – High-Risk animal by-products including manure and digestive tract
contents and condemned meat (on-farm deaths). All Category 2 animal by-products must
be directly disposed of by incineration or processed through a composting/biogas plant
provided they have been rendered under pressure (133C, 3 bar) prior to entering the
composting/biogas process.
Category 3 – Low risk animal by-products including parts of slaughtered animals that are
fit for human consumption, parts of slaughtered animals that are not fit for human
consumption but do not have signs of communicable diseases and derive from carcasses
that are fit for human consumption, hides, skins, hooves, horns, feathers, former
foodstuffs and catering waste. Category 3 animal by-products can be processed via a
composting/biogas plant without pre-treatment.
Catering waste is defined as ‘all waste food including used cooking oil originating in
restaurants, catering facilities and kitchens, including central kitchens and household
kitchens.’
Until 31 December 2005 certain former foodstuffs can be transported and treated as
catering wastes. These include:

Food from manufacturing premises if it is currently catering waste (products intended
to be eaten without further cooking) and

Food from retail outlets if measures are taken to exclude raw meat.
The treatment standard required for composting or biogas digestion of animal by-products is
70C for 1 hour with a maximum particle size of 12mm. The standard is mandatory for
treatment of all Category 3 animal by-products (excluding catering waste) and Category 2
animal by-products that have been rendered. The composting must take place in a closed
reactor, as the Regulation requires that there is no access by vermin. In addition, all material in
the system must meet the required temperature for the necessary time.
The Regulation allows for national standards to be applied for the composting of catering
wastes.
3.2.7
Other European Legislation
Other key European legislation which specifically affects waste management, either at present
or in the future includes:
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
28
EU Directive on Waste 75/442/EEC (amended 91/156/EEC and 91/692/EEC), Articles 3,
4&5
This places a requirement on Member Sates to have a regard to the need to minimise waste,
encourage recycling and waste recovery. There must also be a regard to the need to protect the
environment and human health in the context of potentially polluting developments.
Proposed Producer Responsibility Directives
The Waste Electrical and Electronic Equipment (WEEE) Directive seeks to promote the
separate collection, re-use or recycling of electronic waste. The WEEE Directive requires
producers to recover 75% of goods taken back for disposal and to re-use 70% of those goods. A
target for the separate collection of 4 kg of WEEE per inhabitant per year is to be achieved by
the end of 2006. The final text of the Directive was ratified by the European Parliament on 18th
December 2002 and is likely to entered onto the EU statute book in February 2003. Member
States have 18 months to transpose the Directive into national law, with producer responsibility
due to start in around March 2005.
This Directive is augmented by a proposal adopted by the EU to place restrictions on the use of
certain hazardous substances in electrical and electronic equipment (COM(2000)347) from
2008. Government guidance is that local authorities should consider working with producers
(i.e. manufacturers and importers for electrical and electronic equipment), who will be
responsible for treatment, recovery and meeting recycling targets. The community sector may
also have a role to play.
A proposed producer responsibility Batteries Directive will require the separate collection and
recycling of all types of batteries in the EU. Current national collection and recycling rates vary
significantly across Europe. The Directive aims to harmonise the very different situations in
member states and sets high recovery targets. In doing so, the Directive aims to reduce the
quantities of post consumer batteries entering the waste stream. Under the new proposal, targets
have been set to collect 75% by weight of all spent consumer batteries and 95% of spent
industrial and automotive batteries. Batteries containing mercury will be banned immediately
and those containing more than 5ppm of cadmium by weight will be banned from 2008. The
Batteries Directive poses a significant challenge to the UK as there are no operational
collections for mixed domestic batteries at present. The Government is currently funding
research into the cost implications of recycling household batteries in the UK, and a pilot
scheme has started in Lancashire.
European Directive 96/59/EC on the Disposal of Polychlorinated Biphenyls (PCBs) and
Polychlorinated Terphenyls (PCTs)
This requires that where reasonably practicable, PCB containing equipment which is less that 5
litres in volume and which is contained within another piece of equipment shall be removed and
collected separately when the latter equipment is taken out of use, recycled or disposed of. The
PCB containing equipment will need to be treated as special waste. The components involved
consist of small capacitors in electrical equipment such as refrigerators, washing machines,
cookers, and fluorescent light fittings which were manufactured between the 1950s and 1986.
Hazardous Waste or “Special” Waste Legislation
The Hazardous Waste List (94/904/EC) has been refined, increased in length and incorporated
within the European Waste Catalogue, which is the new standard by which all waste in the EU
must be defined. This means that many items which were formerly not considered hazardous
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
29
will in future be considered as such, for example much electrical equipment, and fluorescent
tubes. It also sets out standards for composting, anaerobic digestion and mechanical-biological
treatment, and for compost labelling, and proposes that public authorities procure the compost,
particularly as a substitute for peat.
Working Document on The Treatment of Biodegradable Wastes (2nd Draft)
In February 2002, the European Commission issued a the 2nd draft of a working group document
on the treatment of Biodegradable Wastes. This discussion document sets out proposals that
could represent embryonic development of potential future EU Directive on biodegradable
waste designed to compliment the requirements of the Landfill Directive.
The Landfill Directive does not fix the way in which required reductions in the landfilling of
biodegradable wastes have to be obtained. However, it gives a clear indication that
biodegradable waste should be preferably treated via biological treatment processes such as
composting and anaerobic digestion. Both the EU Council and Parliament therefore invited the
European Commission to evaluate whether there was a need for a Community initiative to
promote and harmonise the regulation of biological treatment systems.
The working document set out a series of measures designed to enhance home composting,
community composting and other forms of biological waste treatment These include the
mandatory introduction of separate collection systems for biological waste for all urban areas
with a population of more than 2,000 inhabitants within 5 years. The document also proposes
minimum technical requirements for biological treatment processes (e.g. windrow composting)
and limitations on the use of compost/stabilised biowastes related based upon specific quality
standards.
3.3
National Pressures
3.3.1
National Waste Policy
The National Waste Strategy for England and Wales6 was published in May 2000 and sets out
the Government’s policy and vision for the promotion of sustainable waste management over
the next twenty years. The document expands on information previously published in the
Government’s White Paper “A Way with Waste”7, by providing additional detail on the
Government’s aspirations over the short, medium, and long term and the contributions that local
authorities will be required to provide in meeting the national objectives. Local authorities are
required to consider BPEO (Best Practicable Environmental Option) with reference to the
framework provided by the waste hierarchy and the proximity principle when making strategic
waste management decisions.
The National Waste Strategy reaffirms the Governments belief as expressed in “Away with
Waste” and “Less Waste More Value” that Local Authorities should not resort to incineration
with energy recovery without full consideration to the possibilities of recycling and composting.
6
Department of the Environment, Transport and the Regions (2000). Waste Strategy 2000. ISBN 0 10
146932 2 May 2000.
7
A Way with Waste: A draft waste strategy for England and Wales Parts 1 and 2. Department of the
Environment, Transport and the Regions, June 1999.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
30
In particular, the Governments now states that energy from waste facilities should be sized and
contracts sensitively designed so as to avoid competition with recycling. Nevertheless the use
of waste as fuel can produce benefits best exploited where energy from waste plant form part of
integrated waste management system and are designed as a combined heat and power (CHP)
system. To meet the Governments targets for waste recovery processes such as energy from
waste and anaerobic digestion will need to be considered.
The national waste strategy sets a series of targets for recycling and composting and recovery
for 2005, 2010, and 2015. The key national targets set out in Waste Strategy 2000 are:
Table 3.2
Table 3.3
National Targets for the Recycling and Composting of Household Waste

To recycle or compost at least 25% of household waste by 2005

To recycle or compost at least 30% of household waste by 2010

To recycle or compost at least 33% of household waste by 2015
National Targets for the Recovery* of Municipal Waste

To recover value from 40% of municipal waste by 2005

To recover value from 45% of municipal waste by 2010

To recover value from 67% of municipal waste by 2015
* Recovery means to obtain value from waste through recycling, composting, other forms of material recovery, or
recovery of energy.
To ensure that all local authorities contribute to achieving these targets, the Government has set
statutory performance standards for recycling and composting for each local authority for
2003/04 and 2005/06.
Walsalls Statutory Performance Standards are:

To recycle or compost at least 16 % of household waste by 2003/04

To recycle or compost at least 24 % of household waste by 2005/06
The Government will also set statutory performance standards for local authorities for 2010
and 2015.
3.3.2
Waste Emissions and Trading Bill
This Bill, which was published in November 2003,, sets the framework for a landfill allowance
trading scheme and provides for the details of the scheme to be established in regulations made
by the Secretary of State. Defra published the Landfill Allowance Trading Scheme
Consultation Paper in August 2003, requesting responses by mid November 2003.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
31
The current proposals are that only WDA’s will be able to hold permits. Allowances in year 1
of the scheme are to be calculated on current BMW landfill rates (assuming 2003/04 as the base
year), with target year allocations (2010, 2013, 2020) to be calculated from current municipal
arisings (assuming base year 2003/04). Allocations for interim years will be made by drawing a
line between each WDA’s first year allocation and each of their target year allocations. The
mechanism for delineating this line is yet to be decided. Permits can be banked borrowed or
traded allowing authorities flexibility in the development of their strategies. However permits
are not allowed to be banked for use in a target year, nor can permits be borrowed across target
years. It is also proposed to cap borrowing up to 5% of the following years allowance.
3.3.3
Animal By-products Regulations 2003 (SI No. 1482/2003)
Statutory Instrument 1482/2003 is the enabling regulation for England, bringing into force
powers of entry and offences to allow the enforcement of the EU Regulations. Separate
enabling regulations will be required, issued by devolved governments, for enforcement of the
EU Regulations in Scotland, Wales and Northern Ireland. The English Regulations replaces the
Animal By-products Order 1999 in England.
The English Regulations enforce EU Regulation (EC) No 1774/2002 as amended by:

Commission Regulation (EC) No 808/2002

Commission Regulation (EC) No 811/2002 implementing Regulation (EC) No
1774/2003 as regards the intra-species recycling ban for fish, the burial and
burning of animal by-products and certain transitional measures

Commission Regulation (EC) No 813/2002 on transitional measures under
Regulation (EC) No 1774/2002 as regards the collection, transport and disposal of
food stuffs

Commission Decision 2003/302/EC on transitional measures under Regulation
(EC) No 1774/2002 as regards the use in feed of used cooking oil

Commission Decision 2003/321/EC on transitional measures under Regulation
(EC) No 1774/2002 as regards the separation of Category 2 and Category 3
oleochemical plants

Commission Decision 2003/321/EC on transitional measures under Regulation
(EC) No 1774/2002 as regards the low capacity incineration or co-incineration
plants which do not incinerate or co-incinerate specified risk material or carcasses
containing them.
The Regulations state that minimum times, temperatures and maximum particle sizes are
required for composting/biogas systems as follows:
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
32
Table 3.4
Minimum time, temperature and maximum particle sizes required for
composting/biogas treatment of catering waste in England8.
System
Minimum Temperature
(C)
Minimum Time at
Minimum Temperature
Maximum Particle Size
(cm)
Composting (closed reactor)
60
2 days
40
Biogas
57
5 hours
5
Composting (closed reactor) or
biogas
70
1 hour
6
Composting (housed windrow)
60
8 days *
40
*During which time the windrow must be turned at least 3 times, at no less than 2 day intervals
Additional conditions for the composting of catering wastes are either:
1. Meat excluded catering wastes (i.e. separation at source) can be composted (as above)
and then must be stored for 18 days post treatment (does not need to be enclosed); or
2. Re-treatment
Thus meat containing catering waste must be composted via a 2-composting stage process: the
first composting stage must be in an enclosed system, the second composting stage does not
need to be enclosed.
Category 3 animal by-products (excluding catering waste) and Category 2 animal by-products
that have been rendered can be composted but the EU standards (70C for 1 hour with a
maximum particle size of 12 mm) must be adhered to. Raw meat or wastes from the production
of products that require further cooking are considered to be animal by-products and are subject
to EU composting requirements.
Meat excluded catering wastes does not mean waste where meat and non-meat organics have
been collected together and steps subsequently taken to remove the meat fraction from the mix.
Rather it means that the meat fraction was never mixed in with the non-meat waste stream.
The EU Regulation prohibits the application to pasture land of organic fertilisers and soil
improvers other than manure. The English Regulations define pasture land as “land that is
intended to be used for grazing or cropping for feeding stuffs following the application or
deposit of organic fertilisers and soil improvers within the following periods:
a) Two months in the case of pigs
b) Three weeks in the case of other farmed animals.
3.3.4
Waste Recycling Payments Regulations 1992
These Regulations and subsequent amendments bring in to effect provisions made within
EPA 1990 for the payment of recycling credits by WDA’s for waste recycled by WCA’s and
third party organisations. The current value of recycling credit paid by Walsall MBC is
Taken from ‘Draft guidance on the treatment in approved composting or biogas plants of animal byproducts and catering waste’. Defra 2003
8
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
33
approximately £31/tonne. The recycling credit system introduced by EPA 1990 is currently
being examined as part of reviews initiated following the issue of Waste Strategy 2000
3.4
Financial Pressures
Financial drivers have been most apparent in landfill disposal. The present growth in landfill
costs can be attributable to the stricter regulation of landfill activities, improved engineering
standards, and the limited capacity of landfill void space.
Landfill tax was imposed in October 1996 at a rate of £7 per tonne. The tax is a levy
specifically targeted on the disposal of wastes in landfill sites throughout the UK. It has two
main objectives:

To ensure as far as practicable, that the cost of landfill properly reflects the impact
which it has upon the environment; and

To help ensure that targets for more sustainable waste management in the UK are
achieved.
The current rate of landfill tax is £14 per tonne (2003/04). In the Chancellors 2003 Budget the
government announced that the tax will rise to £15 a tonne in 2004/05, £18 a tonne in 2005/06
and at an annual rate of £3 per tonne thereafter. This would harmonise the UK tax at average
European levels by 2011. Such increases will further increase the cost of landfill and introduce
financial risks for landfill orientated waste management solutions over the medium and long
term.
3.5
Implications for Walsall
In estimating the future requirement for waste management facilities, it is important that all the
potential influences on waste arisings and management requirements are considered.
The following section uses the waste projections in Chapter 2 in order to determine the tonnage
of material that requires recycling and recovery in order for Walsall MBC to meet the
requirements of the National Waste Strategy. The Implications of the Landfill Directive are
addressed in Chapter 7.
Walsall’s statutory performance standard for recycling and composting set for 2003/04 is 16%
of the household waste stream. The combined rate achieved in 2002/03 is 11.4%, requiring
Walsall to improve on current recycling and composting figures by nearly 50%. To meet the
24% target by 2005/6 Walsall will be required to improve upon its current rate by 2.5 times over
the next three years.
Table 3.5 indicates how much waste will need to be recycled/composted and recovered, based
on a range of annual waste growth rates, in order for Walsall to meet the targets.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
34
Table 3.5
Year
Estimated Tonnages of Waste to be Recycled and Recovered in Walsall to meet the
Performance Standards and National Targets
Statutory Performance Standards
Tonnes to be recycled/composted and recovered
2%pa increase
in waste
arisings
3%pa increase
in waste
arisings
3%pa reducing
HH waste
growth arisings
Local Performance Standards
2003/04
To recycle/compost 16% of household waste
stream
21,432
21,642
21,642
2005/06
To recycle/compost 24% of household waste
stream
33,447
34,440
34,273
2%pa increase
in waste
arisings
3%pa increase
in waste
arisings
2%pa reducing
MSW growth
arisings
Year
National Targets
National Recovery Targets
2005
To meet 40% recovery of Municipal waste
71,737
73,868
71,385
2010
To meet 45% recovery of Municipal waste
79,204
85,633
75,771
2015
To meet 67% recovery of Municipal waste
130,199
147,805
117,109
The recycling rate that can be achieved in a local authority is dependant upon a number of
factors including waste composition, type of collection receptacle provided, the frequency of
collection, the support programme available to maintain public participation, the demographics
of the district etc. Walsall recycled and composted 14,962 tonnes in 2002/03. To make the
16% target the council will be required to compost and recycle an additional 6,407 if arisings
increase at 1.7% per annum (national average).
Using the data from the recently conducted compositional survey, the quantity of dry
recyclables and compostables in the collected waste stream can be identified. Table 3.6 shows
the recycling tonnage of recyclable categories for Walsall MBC for 2002/03. (This table
excludes bring bank recycling and recycling on the civic amenity site).
Waste composition survey data can often be misinterpreted when calculating the amount of
material available for recycling from collection round waste. Kerbside recycling schemes rarely
target all of the material available and therefore overestimating the amount available for
recycling. For example, all dense plastics are not targeted, due to issues such as market
availability and therefore only bottle plastics are requested. However, bottle plastics i.e. PET,
HDPE, PVC. only account for around 32% of dense plastics in Walsall MBC. A revised
calculation of the recycling tonnage available is shown in Table 3.7 in relation to materials
targeted by current collection systems and market availability within the UK. It must be
recognised that these may be subject to change as markets and technologies develop and
legislation evolves.
When introducing a kerbside recycling scheme, it is unlikely that 100% of households offered
the scheme will participate and will divert 100% of their potential material available, into the
collection receptacle provided. Table 3.8 shows potential material available using typical
materials specific capture rates and different participation levels. Table 3.9 shows the potential
material available using predicted capture rates assuming household behaviour will improve.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
35
These tables do not account for any change in technologies or markets and therefore assume that
similar materials are targeted in kerbside collections i.e. bottle plastics, not all plastics; ferrous
food and drink cans not all ferrous metals.
Table 3.6
Recycling Potential in Walsall MBC in 2002/03
Category
% Composition in Walsall
2002/03 Tonnage composition
Paper/Card
28.8%
27,306
Dense Plastics
6.6%
6,258
Ferrous Metals
3.8%
3,603
Non-Ferrous Metals
1.2%
1,138
Glass
7.0%
6,637
Textiles
3.5%
3,319
Sub Total Dry
50.9%
48,261
Putrescible
19.0%
18,015
Sub Total Wet
19.0%
18,015
Total Recyclable
69.9%
66,276
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
36
Table 3.7
Potential Quantity of Recyclables Available in Walsall 2002/03
Average Assay (%) 2002/03 Tonnage Composition
Newspapers
9.6%
9,102
Magazines
4.9%
4,646
Other Paper
6.7%
6,353
Flat Pack Card
3.4%
3,224
Sub Total Paper and Card
24.6%
23,324
PET Clear Bottles
1.0%
948
PET Coloured Bottles
0.1%
95
HDPE Natural Bottles
0.5%
474
HDPE Coloured Bottles
0.5%
474
Sub Total Dense Plastic
2.1%
1,991
Clothes
1.7%
1,612
Shoes
0.4%
379
Sub Total Textiles
2.1%
1,991
Clear Bottles
3.3%
3,129
Clear Jars
1.0%
948
Green Bottles
1.5%
1,422
Green Jars
0.0%
0
Brown Bottles
0.9%
853
Brown Jars
0.0%
0
Sub Total Glass
6.7%
6,353
Food Cans
2.4%
2,276
Beverage Cans
0.6%
569
Sub Total Ferrous Metal
3.0%
2,844
Food Cans
0.2%
190
Beverage Cans
0.4%
379
Aluminum Foil
0.4%
379
Sub Total Non-Ferrous Metal 1.0%
948
Sub Total Dry
39.5%
37,452
Garden Waste
6.9%
6,542
Sub Total Putrescible
6.9%
6,542
Sub Total Wet
6.9%
6,542
Total Recyclable
46.4%
43,994
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
37
Table 3.8
Potential Quantity of Recyclables Available in Walsall 2002/03 In Relation to different
Participation Rates (Assuming Current Capture Rates)
Participation Rates
100%
80%
70%
60%
50%
Sub Total Paper and Card
14,474
11,580
10,132
8,685
7,237
Sub Total Dense Plastic
1,056
845
739
634
528
Sub Total Textiles
1,175
940
822
705
587
Sub Total Glass
5,093
4,074
3,565
3,056
2,546
Sub Total Ferrous Metal
1,018
815
713
611
509
Sub Total Non-Ferrous Metal
265
212
186
159
133
Sub Total Dry
23,082
18,465
16,157
13,849
11,541
Sub Total Putrescible (garden waste
only)
5,234
4,187
3,664
3,140
2,617
Sub Total Wet
5,234
4,187
3,664
3,140
2,617
Total Recyclable
28,316
22,652
19,821
16,989
14,158
Table 3.9
Future Capture Rates Potential Quantity of Recyclables Available in Walsall 2002/03 In
Relation to different Participation Rates (Assuming Future Predicted Capture Rates)
Participation Rates
100%
80%
70%
60%
50%
Sub Total Paper and Card
18,299
14,639
12,810
10,980
9,150
Sub Total Dense Plastic
1394
1115
976
836
697
Sub Total Textiles
1394
1115
976
836
697
Sub Total Glass
5,528
4,422
3,869
3,317
2,764
Sub Total Ferrous Metal
1,764
1,411
1,234
1,058
882
Sub Total Non-Ferrous Metal
607
485
425
364
303
Sub Total Dry
28,985
23,188
20,289
17,391
14,492
Sub Total Putrescible (garden waste
only)
5,888
4,710
4,122
3,533
2,944
Sub Total Wet
5,888
4,710
4,122
3,533
2,944
Total Recyclable
34,873
27,898
24,411
20,924
17,436
This data indicates that there is the potential to collect approximately 37,452 tonnes of dry
recyclables (Table 3.7) from the collected household waste stream based on 2002/03 waste
composition and 2001/2 arising (excluding bring banks and civic amenity recycling) data. A
more pragmatic view is that around 16,157 tonnes of dry recyclables (Table 3.8) are available
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
38
assuming that a 70% participation rate is achieved and average capture rates are applied to any
kerbside scheme introduced. A further 3,664 tonnes of garden waste is available using the same
assumptions. In 2002/03, Walsall collected 6,152 tonnes from the existing brown bin collection
scheme.
To meet the 2003/04 targets Walsall MBC have extended the brown bin scheme, introduced a
kerbside collection pilot for 26,000 properties and have also increased resources at the
HWRC’s to assist the public with segregation of materials.
There are a number of ways Walsall may achieve its recycling targets for 2005/06 based on
existing activities and future options of targeting different recoverable waste streams at the
kerbside. Using the data in Table 3.6 and assuming a growth in household waste arisings of 3%
per annum Table 3.10 illustrates how targeting different materials at the kerbside can contribute
to meeting the recycling targets for 2005/06.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
39
Table 3.10
Examples of Recycling Options 2005/2006
Tonnage of recyclable material collected in 2005/06 (Tonnes)
Recycling Option
Participation
%
Kerbside
collection of
dry recyclables
Kerbside
collection of
green garden
waste
Kerbside
collection
of kitchen
organic
waste
Existing
bank &
civic
amenity
recycling*
Total
recycling
tonnage
2005/06 Waste Arisings = 142,804 tonnes
0
Existing situation
8,152
0
9,810
17,962
Maximised
kerbside
collection
of
dry
recyclables only
70%
16,157
0
0
11,310
27,467
50%
11,541
0
0
11,310
22,851
Maximised
kerbside
collection
of
dry
recyclables
and
separate collection of
green garden waste
70%
16,157
9,664
0
11,310
37,131
50%
11,541
8,617
0
11,310
31,468
Maximised
kerbside
collection
of
dry
recyclables
and
separate collection of
green garden waste and
kitchen organic waste
70%
16,157
9,664
4,818
11,310
41,949
50%
11,157
8,617
3,441
11,310
34,525
*Assumes target of additional 1.5 tonnes recycling at HWRC
To meet Statutory recycling target of 24% 2005/2006
Recycling Option
Participation
%
Total recycling
tonnage
Using existing situation
Maximised kerbside collection
of dry recyclables only
Maximised kerbside collection
of
dry
recyclables
and
separate collection of green
garden waste
Maximised kerbside collection
of
dry
recyclables
and
separate collection of green
garden waste and kitchen
organic waste
Target
Surplus/ (Shortfall)
(-16,193)
17,962
70%
27,467
(-6,806)
50%
22,851
(-11,422)
70%
37,131
2,858
34,273
50%
31,468
(-2,805)
70%
41,949
7,676
50%
34,525
252
A collection of dry recyclables alone would fail to meet the statutory 2005/06 target.
Achievement of the 70% participation level, combined with the civic amenity recycling and
composting has the potential to meet the 2005/06 recycling and composting target. Maximised
kerbside collection together with green and kitchen organic composting would meet 2005/06
targets at both the 50% and 70% participation levels.
The above options are considered in more detail in Chapter 4.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
40
4.
Future Options for Waste Disposal
Management in Walsall - BPEO
4.1
Introduction
At present landfill is generally the lowest cost disposal option for waste disposal in the UK.
However, as suitable sites become more scarce and as environmental standards for managing
and restoring sites become more demanding, landfill costs are increasing. The predicted increase
in landfill tax rates will further increase the cost of landfill disposal. The current rate of landfill
tax is £14 per tonne (2003/04) In the Chancellors 2003 Budget the government announced that
the tax will rise to £15 a tonne in 2004/05, £18 a tonne in 2005/06 and at an annual rate of £3
per tonne thereafter. This would harmonise the UK tax at average European levels by 2011.
Changes of this magnitude pose a significant economic risk to local authorities that pursue
waste management solutions that involve landfilling a substantial proportion of waste arisings.
Walsall MBC currently relies heavily on the disposal of waste to landfill. Consented landfill
capacity in the Black Country and the wider West Midlands is becoming depleted, however
municipal waste arisings in Walsall are increasing, in 2001/02 arisings were up 2% on the
previous year, however in 2003/03 arisings declined slightly on the previous year.
Although the landfill reserves currently accessed by Walsall MBC have sufficient capacity (at
current rates of in-fill) to serve the Borough for sometime, competition for commercial landfill
capacity will reduce the accessible void space over the medium to long term. As landfill
capacity within the Black Country diminishes the transportation of waste to distant landfill sites
will become an increasingly likely prospect unless more sustainable waste management
practices are introduced. Waste transportation will be expensive and is likely to require
additional waste handling, necessitating the use of transfer facilities to improve the haulage
efficiencies. The greater the distance, the greater the environmental impacts caused by
transportation and the greater the financial cost. This is why the Government now requires local
authorities to give full consideration to the proximity principle for the management of municipal
waste. There is therefore a clear need to systematically consider the practicable options that
Walsall MBC can adopt for the future management of wastes that will minimise environmental
impacts, manage costs and reduce risk.
4.2
Overview of Options
In developing a waste management strategy, the Council is required to looked at various ways
of dealing with Walsall’s waste in the future.
The four options for consideration are:

Baseline (Continuation of existing situation) involves landfilling as the
predominant disposal method supplemented by the existing kerbside, civic amenity
and bank recycling schemes together with a small percent of arisings going to
existing Energy From Waste facilities. Transfer station facilities would continue to
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
41
be required in the Borough. This option assumes that municipal waste arisings
continue to grow at 2% per annum.
4.3

Option 1 (Maximised dry recycling and composting) is based on maximising
recycling and composting through the expansion of the kerbside collections to a
triple bin/bag/box collection system, and optimising the efficiencies of civic
amenity recycling and bring bank recycling. This option requires householders to
sort their waste into 2 or 3 separate receptacles for: dry recyclables, kitchen and
green waste for composting, and other waste to be disposed of to landfill. Public
participation in the recycling schemes would have to be increased substantially 70%
by 2005/06. The residual waste would be disposed of to landfill. This option
assumes the Council invests significantly in sustained waste education and
minimisation initiatives. Over the twenty year horizon of this strategy these efforts
are expect to yield significant reduction in waste growth. This scenario assumes a
gradual reduction in the rate of waste growth from 2% per annum initially to a 0%
annual increase by 2024.

Option 2 (Maximum energy from waste) is aimed at maximising the recovery of
energy through an energy from waste facility as the predominant treatment method.
The option is modelled on existing proven mass burn technology. This is delivered
in two tranches reflecting the requirement for increasing capacity as waste arisings
continue grow (at a rate of 2% per annum as in the Baseline). The existing kerbside,
civic amenity and bank recycling service in the Borough supplement the energy
recovery from waste facilities. It will not be possible to put all arisings into the EfW
plant and therefore 50% of trade waste arisings together with the arisings from
drainage clearance is assumed to be directly landfilled.

Option 3 (Balanced recycling and recovery) is aimed at delivering the highest
level of sustainability through adopting the waste management hierarchy and
maximising the diversion of waste from landfill. Recycling, green waste
composting, and the composting of kitchen organic waste would be maximised with
the remainder of the waste being treated by an energy from waste facility. Like to
Option 1, this would require all households to sort their waste into 2 or 3
receptacles for recyclables, kitchen organic and green waste, and residual waste. As
in Option 1, this option assumes the Council invests significantly in waste
minimisation initiatives which, over the twenty years reduces the annual rate of
increase from 2% per annum at the beginning to a 0% increase by the close of the
period in 2024. Option 3 can be achieved either through collecting and sorting
recyclables at the kerbside using specially designed vehicles(Option 3a), or through
the collection of recyclables for sorting at a central facility, termed a Materials
Recovery Facility or MRF (Option 3b). Again it is assumed that 50% of trade waste
arisings are landfilled directly together with drainage arisings.
Assessment of Disposal Options
A Best Practicable Environmental Option (BPEO) assessment of the available options requires
an informed evaluation of the economic and environmental consequences of each waste
management option.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
42
4.3.1
Economic
As part of the option appraisal detailed financial models were developed for all four options.
Figure 4.1 illustrates the increase in costs which is predicted when waste disposal services are
transferred from the current situation to more sustainable facilities (2003). An increase in costs
is apparent for all options compared with the current expenditure. All cost data are presented as
a twenty year averaged cost at net present day value (NVP). All costs presented are exclusive of
landfill tax and haulage charges.
The waste management options that have been modelled are based upon implementing new
facilities, at capacities capable of treating Walsall’s waste alone over a 20 year period, assuming
either a 2 % per annum increase in waste arisings for the Baseline and Option 2, and a 2%
reducing growth for Options 1, 3a and 3b. Economies of scale exist for waste management
technologies i.e. larger plant capacity results in lower gate fees (£/tonne), particularly the capital
intensive plant such as energy from waste/Environmentally Superior Technology Options.
Figure 4.1
Projected 20 year averaged gate fees for proposed options
Indicative anual cost of waste management options (20 yr
average at NPV) excluding landfill tax
ESTO/Enhanced
Technology
EfW
12,000,000
£'s/annum
10,000,000
Green Waste
Composting
In vessel Composting
8,000,000
6,000,000
Landfill.
4,000,000
MRF
2,000,000
Transfer Station
0
Baseline
Approved by Cabinet on 12th May 2004
Option1
Option 2 Option 3a Option 3b
Walsall MBC Waste Management Strategy – May 2004
43
Table 4.1
Indicative Disposal Costs of Options (excluding landfill tax) averaged over 20 year
period at NPV
Waste
Management
Option
Total Disposal Cost
(£/tonne)
Baseline
28.77
1
34.24
2
59.6
3a
52.53
3b
55.17
Note: these costs are indicative only and do not represent accurately modelled costs
The above results are based on current landfill costs and current capital and operating costs for
other plant, however it is also important to consider the sensitivities of these costs to possible
changes in the future. Such changes may result from new, cheaper technologies becoming
available, scarcity of landfill void, increases in landfill tax, additional costs of complying with
new environmental regulations etc.
As a result of the Landfill Directive and the political desire to move up the waste hierarchy, the
costs associated with landfilling are likely to experience the greatest changes. The landfill tax is
set to increase by £1 per year until 2004. Thereafter the rate of taxation will increase by £3 per
tonne per year. These rises will result in harmonisation with the average Northern European
level of taxation by 2010, which is currently £35 per tonne. Options that rely on significant
quantities of waste being disposed to landfill are those most sensitive to cost increases.
The maximised recycling and composting option (Option 1) closely follows the increases in the
landfill basecase option as they both involve a high percentage of landfilling, whereas the
options which result in significant landfill diversion become more competitive over time.
Large increases in landfill gate fees would not be unrealistic for Walsall to expect, as landfill
capacity in the region is constrained and waste would have to be transported over longer
distances involving far greater haulage costs. The sensitivity of the Options to increases in
landfill taxation is presented in Table 4.2.
Table 4.2
Exposure of Options to Landfill Tax
Baseline
Tonnes per annum to landfill
Annual Landfill Tax (@
average of £35 per tonne)
Option 1
Option 2
Option 3a & b
162,007
123,576
56,223
38,811
£5,670,245
£4,325,160
£1,967,805
£1,358,385
The waste management options modelled are based upon implementing new facilities at
capacities capable of treating Walsall’s waste over a 20 year period, assuming either a 2% per
annum increase in municipal waste arisings for the Basecase and Option 2, and a 2% reducing
per annum increase for Options 1 and 3.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
44
4.3.2
Recycling, Recovery and Diversion Targets
Each Option was also assessed against the requirements of Waste Strategy 2000 in terms of
recycling and recovery rates, and the Landfill Directive targets.
Recycling Rate
Recycling rates were calculated as a fraction of the total household waste arisings and relate to
waste that is recycled through materials recycling or composting (excluding home composting).
It is evident from the modelling that the performance standards for recycling and composting
will require a concerted effort on behalf of the council if they are to be achieved. If targets are to
be met, a kerb-side recycling programme is required to access the high volumes of recyclables
that are currently disposed of by householders in their general waste, rather than being recycled
in bring banks. Any scheme will require a relatively high participation rate from the early stages
of the programme to ensure the targets are met. Together with the expansion of the current kerbside scheme for garden waste, and improved recycling at the PWD’s the 2003/04 and 2005/6
targets would be attainable by Options 1 and 3. However if the Council were to maintain the
status quo, then the recycling targets would not be met. Figure 4.2 presents the recycling and
recovery rates for the modelled options.
Recovery Rate
Recovery rates refer to the recycling and composting of waste, plus the use of waste in a process
that recovers value e.g. generates energy (for example incineration with energy recovery or
anaerobic digestion). Recovery rates are calculated as a fraction of the total municipal waste
arisings.
The options that involve an element of energy recovery are the baseline case, Options 2 and
Option 3. The baseline case achieves a constant recovery rate of 15.9% each year, through the
continuation of current recycling and composting activities and the use of Waste to Energy
Facilities. Option 1 would achieve a recovery rate of 20.6% by 2005/06 through material
recycling and composting without the use of an energy recovery facility. Both these options
would fall short of National Recovery Targets for 2005, 2010 and 2015 if further technologies
and facilities were not established.
The EfW component of Option 2 achieves a recovery of 62%, contributing to an overall
recovery rate of 73.6% (including existing recycling and composting activity). These rates are
consistent throughout the twenty years as the scenario assumes increases in waste arisings are
evenly split between recycling/recovery and disposal. Option 3 achieves the highest recovery
rate, reaching 72.9% in 2005/06 and 79.6% in 2023/24. Recovery rates for 2005/06 are based
on the assumption that the EfW facilities are available immediately to receive the waste,
although this is unlikely to be achieved in practice if a new facility is to be commissioned.
Option 2 and 3 meet all National Recovery Targets for 2005, 2010 and 2015, assuming, of
course, the EfW facilities are on-line when required. Therefore, while these options may not
meet recovery targets of 2005, they would exceed the targets set for 2010 and 2015.
Biodegradable Municipal Waste Diversion Targets
Walsall will have to reduce the tonnage of biodegradable waste disposed directly to landfill in
order to meet the statutory diversion targets under the Landfill Directive. The amount of
biodegradable waste that is diverted from direct disposal to landfill has been modelled, and the
options assessed against the Landfill Directive targets (Figure 4.3)
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
45
Figure 4.2
Indicative Recycling and Recovery Rates Achieved by Modelled Options
Landfill Directive Targets.
Maximum BMW allowed to be
landfilled
100.0
Percentage
90.0
Baseline% household
recycled
80.0
Baseline% household
recovered
70.0
Option 1 % recycled of
Houshold w aste
60.0
Option 1 % recovered of
Municipal Waste
50.0
40.0
Option 2 % recycled of
Household Waste
30.0
Option 2 % recovered of
municipal w aste
20.0
Option 3 % recycled of
household w aste
10.0
Option 3 % recovered of
municipal w aste
0.0
02
20
3
/0
04
20
/5
06
20
/7
1
3
5
7
9
1
3
/9
/1
/1
/1
/1
/1
/2
/2
08
10
12
14 016
18
20 022
20
0
0
0
0
0
2
2
2
2
2
2
2
Biodegradable municipal waste disposed to landfill
Landfill Directive Targets.
Maximum BMW allowed to be
landfilled
Tonnes of BMW disposed to landfill
140000
120000
100000
80000
60000
40000
20000
0
2010
Baseline
Figure 4.3
2013
Option1
Option 2
Biodegradable Municipal Waste Diversion
Approved by Cabinet on 12th May 2004
2020
Option 3
Walsall MBC Waste Management Strategy – May 2004
46
Figure 4.3 clearly demonstrates that continuation with the baseline situation and Option 1
cannot meet any of the Landfill Directive targets regarding the diversion from landfill of
biodegradable municipal solid waste (BMW). On the other hand, options 2 and 3 can clearly
meet all Landfill Directive targets with regard to the diversion of BMW. This is due to the fact
that options 2 and 3 involve the incineration of all waste that is not recycled or composted. The
Waste Incineration Directive requires incinerator bottom ash to have a total organic carbon
(TOC) content of less than 3%. Consequently it has been assumed that the bottom ash landfilled
has an organic carbon content of 3%, which is taken to be biodegradable, thus generating a
BMW landfilled for options 2 and 3.
A system of landfill permits may be introduced in England to limit the amount of BMW
authorities can landfill. The implementation of such a system will have significant financial
implications for the future waste management options. Baseline and Option 1, which both rely
heavily on landfill, as the sole or significant disposal method, would necessitate the Council
purchasing additional landfill permits from other local authorities due to the Council exceeding
it’s permitted level of landfill allocation. As the landfill permit allocation declines over time to
meet the targets required by the Directive, the Council would have to purchase more and more
permits in order to continue disposing of the waste to landfill. This would be a substantial
financial risk for the Council. Options 2 and 3, however, which divert over 95% of untreated
municipal waste, would result in an excess of landfill permits available to the Council which
could then be traded to other local authorities. The Council’s strategic plan for achieving the
Landfill Directive and the management of landfill permits is dealt with in Chapter 7.
4.3.3
Environmental
The main purpose of this appraisal is to provide rational information on which of the main
environmental impacts associated with each option can be examined and considered for the
purpose of BPEO determination9.
‘A BPEO is the outcome of a systematic and consultative decision making procedure, which
emphasises the protection of the environment and the conservation of the environment across
land, air and water. The BPEO procedure establishes, for a given set of objectives, the option
that provides the most benefits or the least damage to the environment as a whole, at an
acceptable cost, in the long term as well as the short term.’
An analysis of the environmental impacts arising from each of the disposal options was carried
out using WISARD (Waste Integrated Systems and Assessment for Recovery and Disposal), a
life-cycle assessment (LCA) tool developed to assist Local Authorities with their assessments
by the Environment Agency. The model evaluates the environmental burdens and impacts of
waste management operations.
Within WISARD a user develops various waste disposal scenarios, utilising the compositional
data from surveys (Section 2.3.5) and the calculated waste arisings and flows (2.3.6).
9
Royal Commission on Environmental Pollution: 12 th Report: Best Practicable Environmental Option
(1988). HMSO London Feb. 1988. ISBN 0-0-103102-5
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
47
WISARD utilises the “avoided burden” methodology for calculating environmental burdens.
For example, for recycling activities, credits are given by calculating the energy and raw
materials associated with the production of that product had the recycling not been performed.
Credits are also assigned to those options that generate power, as this energy production is offset against the requirement for fossil fuels (primarily coal for electricity generation).
WISARD has been used to assess the environmental burden against the following impacts
typically regarded as significant with regard to waste management practices:

Global Warming Impacts

Air Acidification

Eutrophication

Natural Resource Use

Dioxins
This assessment has focused on the recovery/disposal aspects and transportation impacts
relating to collection have not been included. Option 3a and 3b are considered on the basis of
tonnages recycled and therefore are the same for this assessment.
Global Warming Impacts
The global warming potential of a waste management system is dominated by the emissions of
carbon dioxide and methane. Methane is a much more potent greenhouse gas compared to
carbon dioxide and consequently a significant consideration in waste management options (in
general terms landfill gas is between 40-65% methane). Thus the global warming potential of
each scenario can be linked to the methane emissions, which is dependant upon the amount of
biodegradable waste disposed of to landfill. As the existing situation (Basecase) relies solely on
landfill disposal, it represents the worst case in terms of its global warming potential.
Figure 4.4 illustrates the indicative reduction in the global warming potentials achieved by each
of the modelled scenarios. The avoided CO2 and methane emissions result from recycling and
waste combustion activities.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
48
Figure 4.4
Global Warming Potential
Global Warming Potential
(IPPC Greenhouse effect (direct 20 years))
1.20E+05
Total effect
(tonnes eq. CO2)
tonnes CO 2 equivalent
1.00E+05
8.00E+04
Carbon Dioxide
(fossil)
6.00E+04
Methane
4.00E+04
2.00E+04
Nitrous Oxide
0.00E+00
-2.00E+04
Baseline
Option 1
Option 2
Option 3
CFC 12
-4.00E+04
Figure 4.4 highlights that those options highly dependent on landfill for final disposal result in a
net increase in greenhouse gas emissions. However the recycling activities and use of waste as
an energy source in place of coal in Options 2 and 3, result in a reduction in the net emissions of
greenhouse gases in the UK. All the alternative options suggest an improvement upon the
Basecase.
Acidification and low level ozone formation
The principal gases that contribute to acidification include: sulphur dioxide (SO2), nitrogen
oxides (NOx), hydrogen chloride (HCL), and hydrogen fluoride (HF). Figure 4.5 shows the air
acidification potential of each option, expressed in equivalence of SO2 emissions.
All options indicate a net benefit with regard to SO2 emissions, this is due to each option
containing an element of energy recovery (from landfill gas and incineration) and recycling.
Notably significant benefits are realised from both the recycling and Energy from Waste
options. Benefits from the energy from waste options are clearly the result in the off-set
emissions from a coal fired power station.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
49
Figure 4.5
Air Acidification Potential
Air Acidification Potential
0
Baseline
Option 1
Option 2
Option 3
tonnes SO2 equivalent
-100
-200
Landfill
-300
Incineration
-400
Composting
Recycling
-500
-600
-700
It must also be noted that transport (which has not been considered in this BPEO) contributes to
acidification, and thus scenarios involving greater transport will result in an increased
acidification impact.
Emissions of volatile organic compounds (VOC’s) are the main contributors to ozone
formation. Within the modelled waste management scenarios, these are emitted from landfills
and are responsible for the impacts illustrated in Figure 4.6. The impact of the landfill is
primarily localised to the general vicinity of the landfill. A clear benefit is identified from
recycling in Options 1 and 3, and further analysis identifies this arising from the recycling of
plastics and iron. Energy recovery is also an important contributing factor.
Figure 4.6
Ozone formation in the lower atmosphere
Ozone Formation in the Lower Atmosphere
tonnes equivalent ethylene
30
20
10
0
-10
Total
Baseline
-20
-30
-40
-50
-60
-70
-80
Approved by Cabinet on 12th May 2004
Option 1
Option 2
Option 3
Recycling
Composting
Incineration
Landfill
Walsall MBC Waste Management Strategy – May 2004
50
Eutrophication
Eutrophication is a natural process, occurring where there is an increase in mineral and organic
nutrients of a water body, primarily nitrogen and phosphorous. The enrichment promotes both
plant growth and microbial activity and eventually results in the de-oxygenation of the water
body. This can result in substantial fish kills, and an alteration to the ecology of the system.
As anthropogenic activities increase the nutrient loading to surface waters (through direct
discharges- sewage effluent, and surface run-off-fertilisers from farm land) so the occurrences
and magnitude of this natural process escalate. Cost are not just to the eco-system, but arise
from loss of amenity value, damage to commercial fishing, increase costs for water purification,
and additional cost required to manage the system.
Leachate from landfills is the main source of eutrophication causing nutrients in waste
management. Thus the greater the diversion of biodegradable waste from landfill the greater the
curtailment of this impact, as Figure 4.7 shows.
Figure 4.7
Eutrophication of waters
Eutrophication Potential
tonnes equivalent PO43-
25
20
15
10
5
0
Baseline
Option 1
Option 2
Option 3
Depletion of non-renewable resources.
Our world has a finite supply of resources in terms of minerals and fossil fuels. The rate at
which these resources are consumed is important when assessing the sustainability of any
activity. Recycling of metals and plastic preserves both the mineralogical value of the item, as
well as its intrinsic energy content (i.e. the energy consumed in production of the material).
Energy from Waste Facilities produce electricity and heat that is assumed would otherwise be
generated from a fossil fuel, thereby conserving that resource. Thus those options that can
optimise recycling and energy recovery from the waste stream are the most sustainable in terms
of resource use. Figure 4.8 shows the relative impact on resource use of the various options.
Option 3, as it utilises both recycling and Energy from Waste has the greatest impact with
regard to resource conservation.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
51
Figure 4.8
Depletion of Non-renewable resource
Depletion of Non-renewable Resources (yr-1)
0
-100000
Baseline
Option 1
Option 2
Option 3
-200000
yr-1
-300000
-400000
-500000
-600000
-700000
-800000
-900000
Dioxins
Dioxins are highly toxic, being thought to be carcinogenic at low exposure levels. The term
‘dioxins’ is generally used to refer to two groups of compounds: polychlorinated dibenzodioxins
and polychlorinated dibenzofurans.
Dioxins have been shown to occur ubiquitously in the environment. Their formation can arise
from various industrial as well as natural activities, for example from most combustion
processes (power generation, forest fires) and as by-products of many chemical processes and
metal smelting, for example steel manufacture.
As dioxins are so widespread in the environment, in many of the materials we use, handle and
eat, they are consequently present in waste as it is collected and so they will be transferred to all
downstream operations. Dioxins have been measured in compost, landfill gas and leachate,
gases and residues from recycling as well as the more commonly cited waste combustion gases
and ashes.
The environmental impacts of dioxins are not so much dependant on the absolute emissions, but
on the pathway to humans and the potential to cause harm to health. Whilst dioxins released into
the air from waste combustion sources can affect humans from absorption through the lungs or
from deposition onto the skin, the major route is from deposition onto vegetation, which is then
eaten by grazing animals.
Accumulation in the food chain is the most significant route into human intake. In this respect,
dioxins in composts and in groundwater may be of greater concern to those released to air from
combustion processes.
Figure 4.9 shows the relative rates of dioxin emission to various media for each of the options.
This shows that all options involving energy from waste generate the greatest dioxin emissions.
All options have emissions to air, however in comparison to the emissions to water these are
negligible. The emissions to water from the Energy from Waste facilities arises from leachate
generation from the landfilled air pollution control (APC) and bottom ash residues.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
52
Figure 4.9
Emission of Dioxins
Average Dioxin Emission g year-1
12
grammes
10
8
Water
Soil
6
Air
4
2
0
Baseline
Option 1
Option 2
Option 3
4.3.4
Summary of Waste Disposal Options
The modelling of the costs and environmental impacts of the various waste management options
presents a complex picture, but represents an essential framework for the decision making
process for investment in, and development of, appropriate waste management infrastructure.
Table 4.3 provides an overview of the performance of each strategy. Performance indicators
include financial aspects (capital investment requirements and 20 year averaged gate fees) and
environmental factors.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
53
Table 4.3
Summary of Economic and Environmental Impacts of Waste Disposal Options
Performance Indicator
Details
Waste Disposal Option
Baseline
1
2
3a
3b
Total Capital Cost (£ million)
£3.3 M
£17.7 M
£58.6 M
£50.4 M
£48.5 M
Averaged over 20
year period
Annual Operating Cost (£
million/year)
£5.5 M
£5.8 M
£11.3 M
£9.4 M
£9.0 M
Averaged over 20
year period
Gate Fee (£/tonne)
£28.77
£34.24
£56.60
£55.17
£52.53
Financial Performance
20 year average annual
tonnage of untreated waste
to be disposed of to landfill.
159,774
123,576
0
0
0
20 year average annual
tonnage of EfW ashes that
could be disposed of to
landfill
2,233
0
56,223
38,811
38,811
Environmental Performance
Recycling Rate (%)
Recovery Rate (%)
Landfill Diversion (%)
and
13.7%
40.3%
13.7%
40.3%
40.3%
15.9
35.0%
92.1%
92.1%
92.1%
Local Statutory Recycling
Target - 2005





Achievement of national
2010 Landfill Directive target





Achievement of national
2013 Landfill Directive target





Achievement of national
2020 Landfill Directive target





Achievement of statutory
Landfill Directive targets





Global Warming Potential
--
-
++
+
+
Acidification Potential
0
+
+
++
++
Local air pollution
-
+
+
++
++
Eutrophication Potential
--
-
0
0
0
Depletion of Non-renewable
resources
+
+
++
++
++
Key to environmental ranking
Worse impact = “ - “
Similar magnitude of impact = “ 0 “
better = “ + “
much better = “ ++ “
Approved by Cabinet on 12th May 2004
If implemented
before 2004/05
Walsall MBC Waste Management Strategy – May 2004
54
From the analysis, the following general points can be made regarding each of the options:
Baseline
Landfilling at the current time is the cheapest option but it has several environmental burdens,
compared to other options. This option is the most sensitive to increases in landfill gate fees and
landfill tax, and will become considerably less competitive in the future compared to other
options that rely less heavily on landfill. This option does not meet any of statutory recycling
targets or recovery targets and could not meet the statutory obligations under the Landfill
Directive. The environmental burdens are largely due to the production of leachate and landfill
gas emissions, which contribute to global warming, eutrophication as well as reducing local air
quality.
The Baseline is not considered a viable waste management option for Walsall. The diminishing
current and future landfill capacity in the area, the requirements of the Landfill Directive, the
obligations to meet statutory recycling and recovery targets, and the long term financial profile
of this option with the added risk of landfill tax and the requirement to purchase additional
landfill permits would necessitate capital investment in alternative waste treatment technologies.
Option 1
The recycling and composting option would achieve a maximum recycling rate of 49% and
would meet the statutory performance standard targets for recycling. However this assumes that
participation rates reach 40% for dry recyclables and 35% for compostables by 2005/06, which
would be a significant achievement, especially as at present there is no dry recyclable kerb-side
collection. Even though recycling and composting is maximised, this Option would not enable
the Council to meet Recovery targets nor meet the likely targets in biodegradable waste going to
landfill.
Due to the considerable reliance on landfill, this option would be sensitive to cost increases of
landfill to landfill tax. It would also retain many of the disadvantages of landfilling in addition
to the increased transportation and its associated environmental impacts due to the need for an
intensive three-bin collection system. Integrated collection of recyclables and putrescibles with
the rest of the household waste stream would reduce transport difficulties but this is likely to
require considerable capital investment in new vehicles and containers.
Option 1 could be a viable option for Walsall in the short term. However Walsall would be
required to implement the kerb-side collection of recyclable from scratch as there is no current
provision of this service anywhere in the borough. However, for this Option to meet the 2005/06
target, it is imperative upon the Council to introduce a widespread service immediately.
This Option would also require further investment in treatment technologies is the medium to
longer term to increase diversion and recovery rates.
Option 2
The maximum energy from waste option offers several environmental benefits. It achieves high
landfill diversion and recovery rates, a reduction in global warming and acidification potentials
due to the displacement of emissions from the traditional power stations and a reduction in
eutrophication and low level ozone formation due to the diversion of active wastes from landfill.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
55
Option 2 will not meet any of the local statutory recycling targets, achieving a combined
recycling and composting rate of 13.7 throughout the modelled period, although this Option
does meet all the national recovery and Landfill Directive Targets. Option 2 is not considered to
be a viable option to fulfil Walsall’s short term objectives. However, elements of this option
combined with greater emphasis on recycling and composting in the short term could provide a
means of meeting the Governments’ medium and long-term targets for waste recovery.
Option 3
This option represents the highest level of sustainability of all options examined and is able to
fulfil all government targets with regard to recycling, recovery and the Landfill Directive. The
Option combines the environmental benefits delivered through recycling and recovery
operations: a reduction in global warming, air acidification, lower atmospheric ozone formation
and eutrophication potentials, and a reduced rate of consumption of non-renewable resources.
Whilst the WISARD assessment and costing exercise has been based on EfW, other technology
options such as MBT with composting, anaerobic digestion or other yet proven technologies
may be utilised.
It is considered to be a viable technical option for Walsall, although it is considerably more
expensive than Baseline and Option 1. Cost impacts may be mitigated by developing
partnerships with nearby local authorities that deliver waste management facilities in a way
which exploits current available capacities in the recovery sector and delivers best value.
4.4
Residual Household Waste Collection
Walsall’s waste collection is delivered by the PSE (Public Sector Enterprise). Household waste
is collected from properties on a weekly basis using a kerb-side collection service. The kerbside collection of garden waste in the brown bin scheme is two-weekly.
If household waste arisings in Walsall were to continue to increase at a rate of 3% per annum
this would result in a doubling of the quantity of households waste requiring both collection and
management/disposal by 2025. This emphasises the importance of waste minimisation, which
will for a core principle of the waste management strategy.
The rates of waste growth in Walsall will have important technical and financial consequences
for waste collection. If waste arisings per household are allowed to increase unchecked, then
collection rounds will need to be adjusted to accommodate for the increase tonnage. This will
mean an expansion in the collection fleet, thus increasing the overall cost of waste collection.
The current household waste recycling schemes in Walsall comprise:
1. A network of bring banks distributed throughout the district
2. A kerbside collection scheme for garden waste to 52,000 households
3. A pilot kerbside paper collection scheme to 28,000 properties
The kerbside collection of compostables comprises of a wheelie bin provided to designated
residents into which garden material is deposited and collected on a fortnightly basis. This
service is suspended over the Christmas/ New Year period, reducing this service to a monthly
collection at this time of year.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
56
4.5
Kerbside Collection Options
Waste management options 1 and 3 require an expansion in the kerbside collection of recyclable
and compostable materials within Walsall. This expansion requires the provision of additional
or replacement receptacles (bags, boxes or wheeled bins) to enable segregation of these
materials by the householder, as well as expanded collection infrastructure.
There are numerous different collection options available with variations in the type of
receptacle, frequency of collection, size of container vehicles etc. Moreover the acquisition or
non-acquisition of a MRF will determine whether a kerb-side sort is required or not. A
selection of example schemes have been modelled and these are illustrated in Table 4.4.
Table 4.4
Household Collection Schemes modelled
Scheme
Wastes
Segregated/
Collected
Materials
Segregated
Receptacles
Provided
% of
Population
Collection
Method
Collection
Frequency
A
Dry Recyclables
PC
Re-usable Bag
100%
Cage
Fortnightly
Organic Waste
Gr, KO
Wheelie Bin- 1 240L
50%
RCV
Fortnightly
Residual Waste
Residual
Wheelie Bin -1 240L
100%
RCV
Weekly
Dry Recyclables
PC, G, FM,
NFM, T, DP
Re-usable bag
1 x Box – 55L
100%
Sort
Fortnightly
Organic Waste
Gr, KO
Wheelie Bin- 1 240L
50%
RCV
Fortnightly
Residual Waste
Residual
Wheelie Bin -1 240L
100%
RCV
Weekly
Dry Recyclables
PC, FM,
NFM, T, DP
Re-usable bag
Wheelie Bin- 120L
100%
RCV
Fortnightly
Organic Waste
Gr, KO
Wheelie Bin- 1 240L
50%
RCV
Fortnightly
Residual Waste*
Residual
Wheelie Bin -1 240L
50%
50%
RCV
Fortnightly
Weekly
Organic Waste
Gr
Wheelie Bin- 1 240L
50%
RCV
Fortnightly
Residual Waste
Residual
Wheelie Bin -1 240L
100%
RCV
Weekly
B
C
D
Those residents with the organic waste collection move to a fortnightly collection for residual waste
Key
PC- Paper, car & Magazines, FM – Ferrous metal, G – Glass, NFM – Non Ferrous Metal, T – Textiles,
DP – Dense Plastic, Gr – Green Garden waste, KO – Kitchen Organics, RCV- Refuse Collection Vehicle,
Sort Vehicle- vehicle in which separate compartments are provided into which staff place sorted materials
Each modelled option contains a number of assumptions:

Waste composition remains constant with time

Household waste growth projections are based on 2% reducing curve

The value of recyclables collected remains constant at current market value

Facility costs are excluded
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
57

Damaged or lost receptacles are replaced at a rate of 5% per annum

Receptacles are bought in bulk (allowing discounting)

All receptacles are provided at the start of the contract

The value of receptacles is depreciated over 8 years

Interest is charged at a rate of 8% of outstanding capital expenditure

RCV’s are manned by a driver and two crew

Sort vehicles are manned by a driver plus two crew

All input and output costs are presented at Net Present Value (NPV)
Modelled costs for the schemes are presented in Figures 4.10 and 4.11 . The systems will result
in a 1.4 to 1.8 fold increase in the averaged annual waste collection costs for Walsall, compared
with the situation in 2002/03. This reflects:

Expansion of kerbside collection of dry recyclables

Introduction of kerbside collection of compostables wastes

Additional resources required to collect the growing quantities of waste
Figure 4.10
Average cost per annum of waste collection systems
Average Service Cost per annum
7,000,000
£'s per annum
6,000,000
5,000,000
4,000,000
3,000,000
2,000,000
1,000,000
Scheme A
Approved by Cabinet on 12th May 2004
Scheme B
Scheme C
Scheme D
Walsall MBC Waste Management Strategy – May 2004
58
Figure 4.11
Average cost per tonne of waste collection systems
Cost per tonne Collected (20 year contract)
50.0
45.0
£'s per tonne
40.0
35.0
30.0
25.0
20.0
15.0
10.0
5.0
0.0
Scheme A
Scheme B
Scheme C
Scheme D
Due to the mixed nature of Walsall’s housing stock, it may not be appropriate for all households
to have an identical level of service provision. The collection scheme needs to be designed to
encourage and promote participation, not hinder it. For example in some areas of terrace
housing, where frontage is directly on to the pavement, it may not be practicable to introduce a
three bin scheme. Indeed it may not be advantageous anyway, especially if the housing
generally benefits from back yards as opposed to gardens, in which case the level of green
compostable waste will be negligible. Thus Walsall will have to develop collection systems that
are compatible across the Borough, inclusive of all residents but reflects the different
requirements that housing types demand.
Thus there are numerous different collection options available with variations in the type of
receptacle, frequency of collection, size of container etc.
The Baseline and Option 2 may require expansion as waste arisings increase, but the
fundamental underlying structure of the service, i.e. 1 240 l wheelie bin per house, will remain.
4.6
Integrated Waste Management Options
Integrated waste management refers to a process that consolidates different aspects of waste
management into a single cohesive system. This system can be potentially administered through
a reduced and rationalised portfolio of contracts. This offers a number of potential benefits to
Local Authorities and should be considered in the process of assessing options for service
delivery and delivering Best Value.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
59
Table 4.5
Advantages and Disadvantages of Integration of Waste Management Services
Advantages
Disadvantages
Economies of scale through the use of a single
contractor for outsourcing service provision
A reduced range of contractors able to provide integrated
services
More experienced national and international contractors
attracted by a larger contract
Some services may be peripheral to lead contractors core
business (problems in track record and understanding of
some niche services)
More co-ordinated Client monitoring as only one lead
contractor will be involved in service provision
Contractors will need good project management tools and
skills
Better spread and co-ordination of monitoring duties as
each Contractor Supervisor could be involved in a range
of services within a defined area
Contract length for all integrated services will be determined
by the time over which capital assets can be repaid. Where
this involves major waste management infrastructure this
likely to be over a period of 20 to 30 years.
Greater service cohesion from collection to disposal
Performance monitoring will be complex.
Co-ordinated approach to street scene issues
Maximised flexibility and partnership with the selected
contractor will enable Walsall to respond to changing
pressures on Local Authorities resulting from new EU
and UK Legislation
The interface between service elements is the
responsibility of a single contractor which will prevent
disputes
Waste flows are the sole responsibility of the lead
contractor
More integration of recycling efforts through the kerbside
collection system and at civic amenity sites
Greater investment opportunities for both the Authority
and Contractor through the integration of cleansing and
collection into long term contracts
Rationalisation of waste management facilities (e.g.
facilities designed and developed to deliver several
services/ functions e.g. combined vehicle depot, CA site
and waste transfer stations)
Increased flexibility in the Contractors use of manpower
and resources (providing the contract enables this)
Rationalised point of contact
Commonality in reporting provisions and data collection
methods
Lead contractors able to negotiate savings from niche
service sub contractors though scale of economies
Management of sub-contractors is the sole responsibility
of the lead contractor (i.e. allowing rationalised project
management).
More scope to demonstrate best value and continuous
improvement across a range of services
By combining the costs of the various waste management options with the modelled collection
costs, the total integrated waste management costs can be analysed and these are set out in
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
60
Table 4.6. The following waste disposal and waste collection systems have been combined,
generating five integrated waste management options

IWMS Baseline- Baseline Waste Disposal Option plus existing waste collection
system

IWMS Option 1 - Waste Disposal Option 1 (maximised recycling and composting)
plus Waste collection Scheme C (weekly residual waste collection and fortnightly
kerbside collection of dry recyclables and 50% of properties on organic wastes)

IWMS Option 2 - Waste Disposal Option 2 (maximum energy from waste) plus
Waste Collection Scheme D

IWMS Option 3a - Waste Disposal Option 3a (highest level of sustainabilitykerbside sort) plus Waste collection system B (weekly residual waste collection
and fortnightly kerbside collection of dry recyclables and 50% of households on a
fortnightly organic waste collection)

IWMS Option 3b - Waste Disposal Option 3b (highest level of sustainabilityMRF) plus Waste collection system C (weekly residual waste collection and
fortnightly kerbside collection of dry recyclables and 50% of households on a
fortnightly organic waste collection).
Table 4.6
Integrated Waste Management Options
IWMS
Baseline
IWMS 1
IWMS 2
IWMS 3a
IWMS 3b
Waste Collection
£5.0
£5.67 M
£4.78 M
£5.81 M
£5.67 M
Waste Disposal
£5.5 M
£5.8 M
£11.3 M
£9 M
£9.4 M
£0.2 M
£0.2 M
£15.01 M
£15.27 M
Education/Waste Min
Total- excluding landfill
tax
4.7
£0.2 M
£10.5
£11.67 M
£16.08 M
Walsall’s Preferred Waste Management Option
Guidance on the choice of options is given both by the Government in “Waste Strategy 2000”,
the Landfill Directive, Best Value, and by the plans and policies detailed in this waste
management strategy. These all indicate that waste minimisation is the preferred option for
managing future waste arisings and that recycling and composting must then be maximised.
“Waste Strategy 2000” states that “where energy from waste solutions are considered, the
strategy should demonstrate that all opportunities for waste reduction, re-use, recycling and
composting have been considered first”.
The assessment of waste disposal options in this strategy indicates that maximising recycling
and composting (Option 1) is a potentially cost effective and viable solution for Walsall over the
short term. However in order to fulfil the medium to longer term Government recovery targets
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
61
the Council must recognise that recovery technologies will be needed for the long term targets
to be met (Option 3).
As a result, Walsall MBC have chosen a balance of recycling and recovery as the basis for the
waste management strategy (Option 3). The central principles of this strategy will be to:
1. Introduce waste reduction, education and awareness programmes in order to constrain
waste growth;
2. Significantly increase rates of recycling and composting over the short to medium term in
order to meet statutory household waste recycling and composting targets;
3. To recover energy from waste that is not recycled or composted over medium and long term
in order to assist with meeting national obligations; and
4. Deliver 1 to 3 above in a way which offers best value to the community of Walsall.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
62
5.
Plans and Policies
5.1
Key Achievements to Date
5.1.1
Pre-amble
To meet the first national statutory target Walsall MBC is currently initiating a programme of
improvements designed to radically improve the recycling and recovery rates. Although still in
its infancy this programme has already impacted upon the recycling rates through simple yet
effective measures. Details of achievements to date are provided in the sections below.
5.1.2
Waste Recycling and Composting
In 2002/03 22,000 properties were provided with a bin for the deposit of garden green waste
under the “brown bin” scheme for the full year. A further 11,000 properties were provided with
a part-year service of 6 months. 2003/04, sees the further roll-out of the brown bins, to an
additional 19,000 properties, taking the overall scheme availability to 52,000 properties, just
under half of the households in Walsall. The remaining 50% of households have been identified
as being predominantly flats or terraced housing, with limited garden, yard or storage areas, and
thus not necessarily ideally suited to a brown bin collection.
At the end of 2003/04, 33,000 properties will have had the service for the full year and an
additional 19,000 properties, which are to be provided with the brown bin collection service in
December 2003, (month 9 in the financial year) will have had the service for the latter three
months of the year.
A kerbside paper collection pilot will operate form January to March 2004 covering 28,000
properties across the Borough.
5.1.3
Public Waste Disposal Sites (PWD’s)
Several improvements have and are continuing to be made to the two PWD sites at Fryers Road
and Leamore. New signage has recently been installed, for all recyclable materials. Signs also
indicate what householders can and cannot recycle. There is now additional skip provision for
cardboard and all skips for final disposal are now identified in red.
Staffing levels have been increased by one operative at each site. The new operative has been
given the task of assisting the public to make good use of the recycling facilities and to sort and
remove recyclables from the disposal skips at quieter times.
It is estimated that these additional measures will increase recycling at the HWRC for 2003/04
by approximately 1,500-2,000 tonnes from those achieved in 2003/04.
5.1.4
Transfer Station
Walsall’s Transfer Station occupies the lower level at Fryers Road. A new bay for segregation
of transfer station waste arising from the Walsall Housing Group and other site users has been
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
63
established. Segregation will focus on rubble and metal arisings, which will be sent to the same
contractors as the material from the HWRC.
Estimated additional tonnages arising from this (based on 6 months operation Sept-March) are
approximately 1,000 tonnes.
5.1.5
Black Country Waste Management Forum.
The Black Country Waste Management Forum (the Forum) is a partnership formed between
Walsall, Dudley, Sandwell and Wolverhampton councils, formed in 2001. The Forum, through
Walsall MBC, have commissioned Entec to advise on the current and potential joint working of
the Forum and on how the four partners can move towards an integrated management
programme across the four boroughs over the short medium and long term
The report concludes that current service provision differs across all four boroughs and together
with the varying disposal operations, representing wide ranging levels of investment, these
clearly provide obstacles to the regional integration of the service. The report recommends the
establishment of a Council Members Forum with the appointment of a dedicated officer with an
appropriate remit together with all parties signing up to a Memorandum of Understanding.
These two initiatives would place the Forum on an established footing and allow work towards
a common standard to progress more readily. The report also recommends that the Forum
should develop a strategic plan with clearly defined objectives against which on-going
performance may be monitored.
There are clear opportunities for short-term projects that can be undertaken by the forum. The
Forum has already realised some benefits through the formation of a purchasing consortium
which had already signed contracts with EMR for refrigeration disposal and Aylesford
Newsprint for newspaper reprocessing. The combined sale of other recyclables could also be
exploited. Other short-term opportunities include addressing waste minimisation and education
collectively, establishing a regional marketing strategy and publicity campaign.
In the medium term there will be a requirement for increasing waste management infrastructure
across the region as all boroughs adapt to meeting recycling and BMW diversion targets. Much
of this infrastructure may be developed privately and may not necessarily be developed in the
Borough to which the majority of capacity is assigned. It is recommended that political
boundaries should not be allowed to unduly influence the siting of facilities, which may be of
strategic significance to all four members of the BCWMF. It is recommended that a site
identification exercise, which seeks to clarify infrastructure and site characteristics and
availability across the Black Country be conducted. Such a survey would facilitate the
development of appropriate infrastructure and seek to reduce uncertainty within the
procurement process.
The report also recommends that Walsall, together with Sandwell should continue in the
development and procurement of their strategic options for the delivery of SPS’s but that there
could be mutual benefit in jointly securing some of the infrastructure to meet their goals.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
64
5.2
Best Value and Consultation
5.2.1
Best Value Performance Indicators
Best Value requires local authorities to fundamentally review their services in consultation with
their citizens and other stakeholders. Best Value authorities are authorised to;

Challenge why the service is provided in the way it is.

Compare their performance against other similar providers of the service

Consults with users of the service and the local community about their views and
decides whether someone else can provide the service more competitively.
Waste management in Walsall is measured by a number of national performance indicators
(some of which are Comprehensive Performance indicators), set by the Government. Those that
are relevant to this municipal waste management strategy are as set out below:
Table 5.1
Best Value
Performance
Indicator
Best Value Performance Indicators
Description
Value in
2001/02
Value in
2002/03
Target
2003/04
BV82a*
Household waste - %
recycled
2.81
3.21
4
BV82b*
Household waste - %
composted
7.29 1
8.18
12
BV82c
Household waste - %
used to recover heat,
power and other
energy
4.3
6.61
3
BV82d*
Household waste - %
landfilled
85.66%
81.95%
81%
BV84*
Kg of household waste
collected per head
503.63
518.35
527
BV85
Cost per km of
keeping land clear of
litter and refuse
£96,056
£82,550
-
BV86
Cost of waste
collection per
household
£21.24
£24.90
£26.50
BV87
Cost of waste disposal
per tonne of municipal
waste
£29.20
£28.53
£30.53
SI 281 (prev
BV88)
No. of collections
missed per 100,000
collections of
household waste
9
116
-
BV90a*
% of people satisfied
with household waste
collection
62.3
-
69
BV90b*
% of people satisfied
with recycling facilities
85.9
-
89
Approved by Cabinet on 12th May 2004
Notes
Increase due to the
expansion of the kerbside
collection of garden waste
The Government proposes to
delete this indicator from
2002/03
This has changed to a Local
Performance indicator .
Actual April to September is
16
Walsall MBC Waste Management Strategy – May 2004
65
Best Value
Performance
Indicator
Description
Value in
2001/02
Value in
2002/03
Target
2003/04
BV90c*
% of people satisfied
with civic amenity sites
80.1
-
80
BV91*
% of population served
by kerbside collection
of recyclables or within
1 km radius of a
recycling centre
93.8
93.8
-
Notes
* Comprehensive Performance Assessment Performance Indicators
Notes 1 These figures differ to those reported in the Audit Commissions Report due to a difference in
applied guidance. The figure used in this strategy uses the definition of household as stated in DETR
Guidance on Municipal Waste Management Strategies, March 2001, and relevant for financial
year 2001/02.
5.3
Strategic Waste Management Policies & Objectives
5.3.1
Introduction
In developing a waste management strategy consideration should be given to the adoption of a
number of strategies, policies and objectives. The following policies and objectives are set out
by way of example and suggestions for consideration by Walsall’s Elected Members with
responsibility for waste management matters.
5.3.2
SWMP 1
5.3.3
Waste Education and Awareness
Walsall in consultation with key stakeholder, such as BCWMF, will seek to deliver
a programme of awareness, promotion and publicity to encourage a fuller
understanding of sustainable waste management issues and practices throughout
the community.
Stakeholder Consultation
SWMP 2
Walsall will seek to engage in a full and interactive dialogue with representative
members of the community on waste management issues within Walsall. In doing so
the Council will endeavour to ensure that all opinions are duly expressed and fully
considered as part of any decision making process. The Council will ensure that the
process of making such decisions is open and fully transparent to all in Walsall.
SWMP 3
Walsall will enter into and maintain meaningful dialogue with the Environment
Agency, nearby local authorities and other Agencies on the development of future
waste management solutions for Walsall to ensure that the strategy and plans are
both consistent and pragmatic in a Regional context.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
66
5.3.4
Waste Minimisation and Reuse
SWMP 4
Walsall in conjunction, other local authorities and other parties will encourage the
reduction and re-use of waste. This will form an objective of a promotional and
awareness programme focused on waste.
SWMP 5
Walsall will establish a programme of waste minimisation, re-use, recycling of
waste materials in respect of its own functions and the services it provides.
SWMP 6
Walsall will establish a challenging series of long term targets for minimising the
municipal waste it collects from the community. The Council will seek to forge
partnerships with community groups and neighbouring local authorities with a
view to establishing common aims and goals in this respect.
5.3.5
Recycling & Composting
In consultation with the Environment Agency, neighbouring Local Authorities and
SWMP 7
other Agencies and having regard to material planning considerations, Walsall
will promote the development of new and existing facilities for waste transfer,
recycling and composting provided that:

These facilities are developed as part of integrated network to deliver Walsall’s
needs and contribute to regional self sufficiency

The facilities are consistent with the aims and objectives of the waste
management strategy for Walsall

There is demonstrable need for the facility.
SWMP 8
Walsall will develop practical initiatives to support waste segregation at source in
the household and encourage similar initiatives in business premises.
SWMP 9
Walsall in partnership with key stakeholders will encourage recycling and
composting at home and in the workplace.
5.3.6
Waste Management
SWMP 10 Walsall is committed to movement towards more sustainable waste management
practices. Walsall considers the progressive development of more sustainable waste
management practices to be a legitimate strategic goal to be achieved over the
short, medium and long term.
SWMP 11
Through the implementation of the waste management strategy and future
contracts, Walsall will seek to progressively reduce the amount and proportion of
Walsall’s municipal waste being disposed of to landfill. In so doing Walsall will
seek to divert municipal waste towards more sustainable waste management
practices which lie higher in the waste management hierarchy.
SWMP 12
Walsall supports the proximity principle and the concept of regional self sufficiency
in respect of waste management facilities. Within these principals Walsall will
endeavour to ensure that the waste produced by our community is managed and
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
67
dealt with within Walsall, or failing this the region, wherever this is possible.
SWMP 13
In working towards more sustainable waste management Walsall will seek through
the implementation of its strategy, to deliver statutory Government performance
standards for waste management.
SWMP 14
Walsall will seek to deliver continuous and demonstrable improvement in the
quality, sustainability and efficiency of the waste management services it delivers.
SWMP 15
Through the implementation of future waste management contracts, Walsall will
encourage its future contractors to be proactive and innovative in identifying areas
for delivering service improvement and achieving its core policies and goals.
5.3.7
Waste Recovery
SWMP 16 In line with Government targets for waste recovery, Walsall will look to recover
more value from waste as part of its waste management strategy over the medium
to long term. The Council will maintain a watching brief on the technologies
available for this purpose and seek to engage in partnerships with others where this
can deliver the best practicable environmental option in way which is consistent
with best value.
5.4
Implementation Plan to Meet the Targets
In the Short-term (to 2005/06)
Walsall MBC will continue to work with Dudley, Sandwell and Wolverhampton to develop the
framework underpinning the Black Country Waste Management Forum (the Forum). Walsall
will support the Forum in its bids to access funds where it is consistent with the Council’s
strategic goals. It will also support the Forum in the development of a regional approach to the
delivery of enhanced waste management services throughout the region where these implement
the waste management strategies of the partner Councils and deliver Best Value.
Service enhancement through the Forum is one option for implementing Walsall’s Waste
Management Strategy and is to be explored. However, Walsall will be unable to deliver on its
immediate SPS targets through the Forum and have developed independent plans to ensure its
delivery of the 2005/06 targets. All these plans are be subject to ongoing review.
Waste education and waste minimisation campaigns will be required if the Council is to meet its
waste arisings objectives. Walsall MBC are to develop a programme of initiatives designed to
fulfil the goal of reducing the year on year growth of household waste arisings from 3.0 % to
0% over the term of the waste management strategy. Programmes should seek to engage all
parts of Walsall’s community, and will include sustained and high levels of interaction with
community groups, schools and the population in general. Progress against waste minimisation
goals is to be monitored
In order to meet the 2003/04 statutory performance for recycling and composting the Council
significantly expanded the brown bin scheme. As of December 2003 the scheme is offered to
52, 000 properties, just over 50% of all properties in Walsall. The scheme is now considered to
be at saturation, with remaining properties being terraced and flats, and thus generating limited
volumes of green waste. Improvements to the recycling facilities offered at the civic amenity
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
68
sites, for example the provision of bins for wood, will also assist the council towards meeting
2004/5 targets.
The Council are in the process of investigating the implementation of a kerb-side collection
scheme for paper, and has submitted a bid to Defra to fund a multi-material collection scheme.
Contingency plans are to be considered for the implementations of such a scheme within
Walsall should the Defra funding be unavailable. In addition, a paper collection pilot covering
28,000 properties commenced during January 2004.
Medium-Term (beyond 2005/06)
A contract (either Walsall stand alone, or through the Forum) should be tendered and awarded
against the achievement of specified performance objectives designed to achieve high levels of
recycling and composting. The managing authority will continually review the landfill
diversion rates being achieved and the delivery of diversion targets as government policy
develops, and will be able to instruct variations to the contract terms and objectives.
Table 5.2
Summarised Action Plan
Action
Launch
1
Provide a bring bank recycling network
Achieved
2
Improve range and quantity of recycling receptacles at both public waste disposal sites
Achieved
3
Provide an additional operative at each PWD site to assist the public segregate their
recyclables
Achieved
4
Amend contract requiring greater recycling from general mixed waste received at PWD’s
Achieved
5
Joint contract with other members of the Black Country Waste Forum to receive, recycle
and dispose of refrigeration units
Achieved
6
Extend brown bin scheme by a further 19,000 properties, to achieve over 50% coverage
Achieved
7
Continue work in developing relationships within the BCWMF to optimise approach to
waste management within the region
Initiated and
on-going
8
Conduct a waste compositional survey of collection round waste, supplemented with a
questionnaire survey.
Achieved
9
Recruit Waste Minimisation and Recycling Officers to develop and promote waste
minimisation and recycling initiatives
Initiated
10
Develop and implement an awareness campaign to promote waste minimisation
Achieved
11
Consult on Draft Waste Management Strategy
Achieved
12
Adopt Draft waste management strategy and submit to Government Office for the
Region
Achieved
13
Apply to Defra funding to enhance rate of recycling and composting
Achieved
14
Work with BCWMF to secure a Best Value contract for recyclables
Initiated and
on-going
15
Tender for short term waste (30 + 12) disposal contracts.
Achieved
(June 2003)
16
Achieve a minimum of 16% recycling and composting
March 2004
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
69
17
Examine options for provision of kerb-side recycling schemes
Initiated and
on -going
18
Pilot kerbside paper collection
Achieved
19
Secure kerbside collection service for dry recyclables
2004
20
Commence kerb-side recycling services
2004
21
Review organic waste collection service to include kitchen compostables
2006
22
Progressive extension of kerbside collection of recyclables and organic waste for
composting
2006-2010
23
Progressive diversion of MSW from landfill
2005-2022
24
Monitor and review progress and strategy
Ongoing
5.5
Plan for Other Waste Streams - Non-household
Municipal Waste
5.5.1
Abandoned Vehicles
New legislation was implemented in April 2002 concerning the End of Life Vehicles Directive
(ELV). It requires all domestic vehicles to be partly dismantled and de-polluted prior to
destruction for scrap. It also requires licensed dismantling facilities to be established and
regulated.
The legislation will require the removal of all fluids (engine, brake, transmission), seats and
batteries from the vehicles prior to disposal as scrap metal, however the extent of dismantling of
a vehicle is still unclear. At present, abandoned vehicles collected within the district are sent
directly for scrap at no charge to the Council. However as scrap merchants are now required to
be registered and regulated, thus incurring additional expense, it is anticipated that the likely
costs of collection, treatment and disposal under the new legislation will be in the region of £50
per vehicle.
5.5.2
Construction/ DIY Wastes
Construction and DIY waste is excluded from the definition of household waste and therefore
the Council is not obliged to accept this waste at the two public waste disposal sites.
5.5.3
Hazardous Waste
There are certain categories of household waste which are considered to be hazardous. There is
currently no collection service for household hazardous wastes, although there are facilities at
the public waste disposal sites for householders to dispose of certain types of hazardous wastes.
A waste oil container and a locked cage for the storage of domestic chemical or hazardous waste
and car batteries are located at Fryers Road civic amenity site. Procedures for other hazardous
wastes including asbestos and refrigerators are detailed below:
Asbestos
‘Hard bonded asbestos’ such as asbestos cement sheet, guttering and pipes is classified as
‘Special Waste’ which means that special rules apply to its transport and disposal.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
70
Walsall MBC refer enquires and requests for the removal and disposal of asbestos to a third
party. Residents can take asbestos to Fryers Road civic amenity site under a permitting system.
CFCs
The main source of CFCs are old refrigerators and freezers. These are either delivered to the
public waste disposal sites free of charge or collected by the Council through the bulky
household waste collection service for a fee.
The EC Ozone Depleting Substances Regulations came in force from 1st January 2002, which
requires all CFCs and HCFCs to be removed from refrigeration equipment before such
appliances are recycled or disposed of. Through the Forums purchasing consortium, a joint
contract was let to EMR to handle all domestic refrigeration units thus enabling each authority
to fulfil its obligation under the ODS Regulation.
5.5.4
Equipment which Contains Low Volumes of PCB’s
Electrical equipment such as radios and washing machines sold before 1986 may contain small
quantities of polychlorinated biphenyls (PCBs). PCBs are usually contained in electrical
capacitors and can cause environmental damage if buried in landfill sites.
The Council is in the process of examining opportunities and measures to identify and segregate
any potentially PCB items delivered to the PWD’s
5.5.5
Packaging
The Producer Responsibility Obligations (Packaging Waste) Regulations (as amended)
encourage re-use and set targets for recovery and recycling of packaging waste. Most businesses
which handle packaging (more than £2 million turnover or 50 tonnes per annum packaging)
have an obligation to recover and recycle certain tonnages of packaging waste each year, so that
the targets in the EU Directive on Packaging and Packing Waste 94/62/EC can be met.
The Environment Agency has a duty to monitor compliance with the regulations in England and
Wales, and where appropriate take enforcement action. The Agency also operates a voluntary
accreditation scheme in the form of Packaging Waste Recovery Notes, which are evidence of
compliance with the packaging regulations.
Currently there are no agreements, partnerships or co-operation between the Council and
compliance schemes or obligated companies. Significant benefits could be achieved for both
businesses and local authorities in utilising the already well established collection and disposal
channels for recycling and recovery. Achieving the statutory performance targets is not
dependant on the recycling of commercial waste but it would assist in attaining the national
recovery targets and have the potential of generating income for the Council.
A review could investigate the possibility of recovering packaging waste through the Council’s
collection and disposal services. This should be done in consultation with the larger producers
and users of packaging and their representative bodies.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
71
5.5.6
Waste Electrical and Electronic Equipment Directive
The proposed Waste Electrical and Electronic Equipment Directive (WEEE) covers a wide
range of electrical and electronic equipment that fall within a voltage range of up to 1,000 volts
AC and 1,500 volts DC. There are 10 categories of WEEE:
1. Large household appliances
6. Electrical and electronic tools
2. Small household appliances
7. Toys
3. IT and telecommunication equipment
8. Medical equipment systems
4. Consumer equipment
9. Monitoring and control instruments
5. Lighting equipment
10. Automatic dispensers
The objectives of the proposed Directive are:

the prevention of waste electrical and electronic equipment;

to increase re-use, recycling and other forms of recovery thereby contributing to a
higher level of environmental protection and encouraging resource efficiency;

to improve the environmental performance of all operators involved in the life-cycle
of electrical and electronic equipment, particularly those involved in the treatment
of WEEE.
Currently WEEE from households is either collected through the general waste collection
service (small items contained in wheeled bins), collected through the bulky household
collection service.
WEEE collected with the normal refuse collection service is currently landfilled, and WEEE
collected via the bulky service and through the PWD sites is either stored in the case of
refrigerants or disposed of to landfill.
Walsall already recover 4 kg per capita
5.6
Partnerships
Most important to the delivery of this Strategy are strong partnerships between local authorities,
relevant organisations and community groups acting in a co-ordinated way to achieve a
common vision for sustainable waste management.
The section describes the background to the principal partnership that is currently in place.
5.6.1
The Black Country Waste Management Forum
To deliver Walsall’s waste management strategy in a way that reduces the cost to the
community of Walsall and makes best use of regional resources the Council is developing
partnerships with neighbouring local authorities. In collaboration with Dudley, Sandwell and
Wolverhampton, Walsall MBC have formed the Black Country Waste Management Forum
(BCWMF).
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
72
For a number of years there has been an ongoing dialogue and discussion around the
convergence of waste management practices in the pursuit of government targets and improved
service delivery. Discussions have focussed on exchanging views on best practice, seeking
efficiencies through joint working and securing certain contracted services covering all of the
four authorities.
The BCWMF intended to provide a focus for the delivery of regional facilities and waste
management solutions for Walsall MBC and its partner authorities. In particular it will be
responsible for:

Accessing funds from Central Government for investment in regional waste
management services and waste related community initiatives;

Procuring waste management facilities and services on behalf of the 4 partner
Council’s (making use of the scale of economies);

Rationalising the use of existing waste management infrastructure and systems in a
way that enables all of the partner authorities to deliver their waste management
objectives and targets.
The provision of enhanced services through the BCWMF therefore may represent the Council’s
preferred method of implementing the waste management strategy. However contingency plans
should be developed in the event that the partnership cannot fulfil Walsall’s requirements, in the
short, medium and long term. These plans should be continuously reviewed and updated as
time progresses.
5.6.2
Community Groups
Neighbouring authorities have linked with a number of community groups in the development
of recycling and waste re-use initiatives. These schemes have been of limited impact on the
overall waste management services provision. In part this has been due to the limited funding
available and management structure. It is recognised that for such partnership initiatives to be
successful there will be a need to ensure that such groups are set up with a view to their long
term sustainability and have access to investment funds and skilled management resources.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
73
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
74
6.
Part 3 - Recycling Plan
6.1
Introduction
The third part of this Municipal Waste Management Strategy provides the essential data
required to be provided in a Recycling Plan. This requirement is set out in Section 49 (3) of the
Environmental Protection Act, 1990 and paragraphs 2 to 7 below set out the Council’s
suggested formal response to these legal requirements.
The majority of waste management contracts held by Walsall terminate in 2005. The Council
should be seeking to formulate a new integrated waste management and environmental service
to commence at some point in the short to medium term future. Due to this major change, the
period of this recycling plan is 2002 – 2005 only. As the waste strategy is further developed,
this section should be expanded and developed to reflect council policy.
Subsequent to the finalisation of the strategy, a new or revised plan will be required when the
details around the delivery of the new waste management arrangements are known.
6.2
Essential Legal Requirements
6.2.1
Controlled Wastes Expected to be Collected During 2002-2005
Household waste arisings rose by an average of +1.9% for the last two years. The national
average growth in household waste arisings is currently +2.7% per annum.
For the purposes of this strategy it has been assumed that there will be no significant change in
the population over the period of the strategy. Even so housing numbers are expected to
increase, due to the trend towards smaller households and single occupancy. One of the major
influential factors inhibiting the reduction in the growth rate of waste is this trend (e.g. each
household receives the same “junk mail” irrespective of the number of occupiers). The number
of households in Walsall is predicted to increase by 500 properties per annum until 2011, with
the average household size predicted to decrease from 2.6 to 2.3. Taking all these conditions
into account, the growth in household waste arisings can be expected to continue to increase at
approximately 3% per year, and municipal waste arisings at 2% per year, until 2005. A
fundamental element of the strategy is a commitment to waste minimisation with the aim of
slowing the rate of household waste growth to 1% by 2015 and eventually zero.
Calculations are based on actual waste arisings for 2001/02
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
75
Table 6.1
Controlled Wastes to be Collected
Type of waste collected
2002-2003
2003-2004
2004-2005
2005-2006
Household waste
138,200
142,346
146,617
150,282
Other Municipal waste
14,142
13,043
11,880
10,592
TOTAL
152,342
155,389
158,497
160,874
6.2.2
Controlled Wastes Expected to be Purchased During 2002-2005
The Council does not expect to purchase any controlled waste during 2002-2005
6.2.3
Controlled Waste Expected to be Dealt with by Separating, Baling or
Otherwise Packaging it for the Purposes of Recycling
6.2.4
Table 6.2
Controlled Wastes to be Recycled
Type of waste collected
2002-2003
2003-2004
2004-2005
2005-2006
Household waste
No targets
22,775
No targets
36,068
6.2.5
Arrangements Expected to be made with Waste Disposal Contractors
During 2002-2005
Walsall is a Metropolitan Borough Council and is responsible for both waste collection and
disposal. The Council currently has contractual arrangements for landfill with a number of
landfill sites. These are listed in Table 2.7.
The Council will continue to procure landfill capacity under a series of short term contracts for
the foreseeable future, whilst developing their long term solutions.
6.2.6
Plant and Equipment Expected to be Provided for Sorting and Baling
Waste During 2002-2005
There is expected to be a requirement for a bulking facility / transfer station to be available as
the multi-material kerb-side collection is rolled out..
6.3 Estimated Costs and Benefits Resulting from
Proposed Actions Outlined in this Plan During 2002-2005
6.3.1
Estimated Benefits
Recycling and Waste Minimisation
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
76
During the period of the Recycling Plan (present-2005/06), Walsall’s recycling rate for
household waste will improve from considerably from the current rate of 10%, to 24% in line
with government requirements.
The improvement in the recycling and composting rates are expected to reflect improved public
participation in kerbside collection schemes for garden waste, paper and in future dry
recyclables. To improve participation in recycling schemes it is Walsall intention to provide
receptacles for the collection of recyclables at the kerb-side and through a sustained campaign
of awareness raising and consultation. The message conveyed through such campaigns will also
cover topics such as waste minimisation and re-use.
The increased rate of recycling and composting achieved by Walsall, will reduce the Council’s
financial exposure to increases in the rate of landfill tax, rising gate fees and the need to secure
landfill permits. These represent an area of considerable economic risk. With the rate of landfill
tax to increase by £3 per year from 2005, it is estimated that the achievement of a 24% recycling
and composting rate by 2005/06 will yield a saving of £685,286 in landfill tax alone in that year.
6.3.2
Estimated Costs
Detailed estimates and costs for the various recycling options should be evaluated as data from
the compositional studies becomes available. It is inappropriate to advance detailed costs at this
time pending acceptance of the principal points arising from this strategic review by the
concerned authorities.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
77
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
78
7.
Part 4 - Landfill Directive: Strategic Plan
to Reduce Landfill
7.1
National Diversion Targets
The European Council Directive 1999/31/EC on the landfill of waste came into force in the EU
in 1999 and its requirements have now been transposed into UK law. This seeks to prevent or
reduce possible negative environmental effects from the landfilling of waste by introducing
uniform standards throughout the EU.
One of the key articles of the Directive sets a timetable for the progressive reduction of
biodegradable municipal waste going to landfill. The UK national targets are:

By 2010 biodegradable municipal waste (BMW) must be reduced to 75% of the total
BMW (by weight) produced in 1995.

By 2013 BMW must be reduced to 50% of the total BMW (by weight) produced in
1995.

By 2020 BMW must be reduced to 35% of the total BMW (by weight) produced in
1995.
To comply with the Landfill Directive, the Government has established national targets for
recovery of municipal waste, and recycling/composting of household waste. These national
targets are supported by statutory performance standards for household recycling and
composting, and tradable permits to restrict the amount of biodegradable municipal waste that
authorities can landfill.
The initial consultation paper “Limiting Landfill” outlined a number of options, of which the
tradable allowance scheme was the most popular. A second consultation document “Tradable
Landfill Permits” outlined how the scheme would work. The two consultations have led to the
Waste Emissions and Trading Bill.
The permits will be allocated free of charge to waste disposal authorities and apply to
biodegradable municipal waste (BMW) only. The permits will be tradable, allowing authorities
that divert more waste away from landfill to trade their permits to those authorities that do not.
In any given period an authority will be able to landfill BMW up to the level of permits held. If
an authority does not require all of the permits for a particular year, then the authority will be
able to trade them, although authorities will not be obliged to trade them if they do not wish to.
Equally if an authority does not have enough permits to cover the amount of waste it intended to
landfill, it would either have to increase its rate of diversion or purchase additional permits.
Authorities may also bank or borrow allocations between years. Unlimited banking will be
permitted within each interim target period. Borrowing against the following years allocations
will be permitted but capped at 5% of a WDA’s next years allocation. However borrowing of
allowances for use in target years and borrowing of permits across target years (i.e. from one
interim period to the next) is not to be permitted.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
79
The present view of Government is that the initial allocation of permits will equal to a WDA’s
current BMW landfilled (base year 2003/04), with target year allocations based on each WDA’s
percentage contributions to total current waste arisings (2003/04 base year). Interim allocations
will be made by drawing a line between year 1 allocations and each subsequent target year.
How this line is to be delineated is as yet undecided.
The preferred means for monitoring compliance is a mass and materials balance approach, and
it is proposed that the Environment Agency will undertaken this function. If the mass of BMW
diverted from landfill can be measured and the proportion of BMW in the waste is known to
start with then it will be possible to calculate the amount of BMW landfilled. To do this the
quantity of BMW within MSW is required. The current estimated figure used by the Agency is
68%, although this is likely to change with the results of the Agency’s UK municipal solid
waste analysis programme (UKMSWAP) (due to commence Autumn 2003 and report
summer 2005).
7.2
Implications for Walsall
Government intends to estimate the amount of BMW that each WDA landfills as 68% of their
municipal arisings. However “adjustments will then be made for each WDA’s main method of
diversion from landfill according to tonnages of waste recycled composted”.
Taking Walsall’s 2002/03 municipal arisings of 150,221 and applying the 68% rule, Walsall’s
BMW content would equate to 102,150 tonnes.
The Defra guidance does not provide data on which BMW permit allocations for individual
WDA’s can be calculated. However the requirement to reduce BMW going to landfill is likely
to be challenging. To provide some indication of the difficulties ahead we have proceeded to
calculated diversion rates based on a 68% BMW content and with targets to reduced BMW to
landfill to 75%, 50% and 33% of 1996 MSW levels. 1996 data has been used as waste arising
figures for 1995 are unavailable, (until the landfill tax was introduced in 1996 much of the
waste management industry worked in cubic yards as opposed to tonnages).
Table 7.1 provides indicative figures for required BMW diversions. The magnitude of the
figures are indicative. These data are presented so that the enormity of the challenge can be
illustrated.
Table 7.1
Maximum BMW allowed to be landfilled
2010
BMW Allowed to Landfill
2013
2020
66,434
44,289
31,002
166,714
171,340
177,426
Required Diversion
46,932
72,222
89,647
Current BMW Diversion
12,142
12,142
12,142
Additional Diversion Required
34,789
60,080
77,505
Predicted MSW Arisings (2% reducing)
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
80
Table 7.2 gives indicative figures for the necessary diversion based on a 2%, 3% and 4% growth
rates. Once again it is clearly demonstrated that waste minimisation needs to be an important
feature in the municipal waste strategy.
Table 7.2
Estimated Tonnages of Biodegradable Waste to be Diverted from Landfill by Walsall
Council - based on the National Average BMW content of 68%
Target
Growth rate of municipal waste (% / year)
2%
3%
4%
Tonnes BMW to be diverted from landfill
To meet 2010 target
50,905
59,198
67,989
To meet 2013 target
80,232
92,992
106,918
To meet 2020 target
112,033
137,836
167,976
7.3
Strategic Plan to Meet the Targets
The implementation of a landfill permit system will have significant financial implications for
future waste management options. In developing this Municipal Waste Management Strategy
the impact of the Landfill Directive should be a key criteria in the Council’s selection of the
preferred waste management option.
It is Walsall MBC plan to meet all of the targets for 2010, 2013 and 2020 by reducing the
growth rate in municipal waste arisings, diverting more municipal waste away from landfill
disposal by maximising recycling and composting, and also utilising Energy from Waste
capacity. The Council will have to commit to moving away from landfill disposal and towards
more sustainable waste management methods. If the Council does not want to exceed the
maximum permitted tonnage of BMW disposed to landfill, and rely on purchasing landfill
permits from other local authorities, there would result in a significant financial risk to the
Council if the adopted strategy is not robust and pragmatic in its objectives. It is assumed that
landfill permit allocations will decline over time to meet the targets required by the Directive,
and the Council would have to purchase more and more permits in order to continue disposing
of the waste to landfill.
Walsall’s preferred waste management option (Chapter 4.6) is based on maximising recycling
and composting, although the Council appreciates the need for maintaining flexibility over the
medium and longer term. The Council will closely monitor the diversion rates achieved and will
also continuously review technological developments in treatment and recovery technologies.
The Council is aware of risks posed by political uncertainty to any waste management strategy.
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
81
Approved by Cabinet on 12th May 2004
Walsall MBC Waste Management Strategy – May 2004
Appendix A
The Waste Hierarchy
6 pages
The Waste Hierarchy - Options for Waste
As discussed earlier, the different waste management options should be considered as a
hierarchy of priorities. The first priority is ‘reducing’ the amount of waste produced. After
reduction comes ‘re-use’ of materials to postpone entry to the waste stream. The third level of
the hierarchy is ‘value recovery’ either by processing the waste to produce ‘recycled’ products,
producing ‘compost’ or deriving ‘energy’ from the waste. The final option is ‘disposal’.
Reduction
The benefits of preventing waste being produced in the first place are that fewer raw materials
and less energy are used, both in production and throughout the materials life. If we reduce the
amount of waste produced, we reduce the amount of waste to dispose of, and reduce the need
for alternative disposal facilities.
Reuse
It has been recognised that much of the waste stream is in fact a valuable resource that can
contribute to a more sustainable society. There are many community-based activities that may
support reuse waste in a constructive way. The principal examples of this sector are charity
shops and furniture restoration workshops.
Recovery of Value
The Governments Waste Strategy 2000 reflects the need for the UK to improve recovery rates
by specifying the following national targets for municipal waste (waste collected and disposed
of by a local authority which includes waste from households, civic amenity sites, street
sweepings and some commercial waste):

to recover value from 40% of municipal waste by 2005

to recover value from 45% of municipal waste by 2010

to recover value from 67% of municipal waste by 2015
Include targets for industrial and commercial wastes.
It is generally assumed that the most sustainable way of managing our waste is to:

reduce the amount of waste that we produce

look for opportunities to reuse, recycle and compost the parts of our waste that can
be managed in this way

finally, recovery energy from the remaining waste
Walsall MBC Waste Management Strategy – May 2004
No single option is sustainable and can deal with all of the waste produced. An integrated waste
management system is required using a range of technologies to recover value from the waste at
a local level.
Recycling
A large amount of the waste stream can be recycled; that is reprocessed to produce a material
for use within society, e.g. the recycling of paper to produce newsprint. The UK recycling rate
is currently 9%, and lags behind that achieved in many other European countries.
The householder has an important role in separating household waste. It is easy to separate
paper, glass, plastics, textiles and green wastes for recycling. The household can either deliver
the separate items to centrally located facilities, called “bring sites”, or to make it more
convenient on the householder, recyclables can be collected the from home by local authorities
in “kerbside collections”. It is the responsibility of Unitary Authorities to introduce both
kerbside collection schemes and to provide bring sites.
The collected material is taken to a Materials Recovery Facility (MRF) where it is sorted by
material type (plastic, glass, aluminium, garden waste etc) and baled together ready for
distribution to reprocessing facilities for reuse or recycling. There are two types of MRF, a ‘pre
sorted’ MRF and a ‘dirty’ MRF.
A ‘pre sorted’ or ‘clean’ MRF deals with recyclable materials which have been separated from
the main waste stream – usually by the householder. The quality of pre sorted recyclable
material is generally higher because it is less likely to be contaminated.
A ‘dirty’ MRF deals with unsorted waste from the ‘black bag’ or ‘wheelie bin’ collection. The
recyclable material in a dirty MRF is often contaminated making the quality poor for
reprocessing facilities.
A typical modern, clean MRF would probably receive segregated waste from kerbside
collection schemes consisting paper, glass, metals, and plastic. The waste may sent to a number
of locations throughout the UK for processing. Recent initiatives by WRAP are attempting to
encourage the development of additional reprocessing facilities and markets across the UK in
order to limit the movement of recyclables. The planning process for siting a MRF can take up
to 2-3 years.
Advantages of a MRF
Disadvantage’s of a MRF

Technology is proven in other European countries, and
in the UK

Potential transport impacts from delivery of waste
and collection of recyclables

Can be located close to waste source


Requires some hand-sorting of waste with
occupational health concerns
Relatively low set up costs in comparison to other
waste disposal options

Significant amounts of energy consumed in the
sorting process -irrelevant with respect to energy
consumption of raw material

Concerns are currently been raised about air quality
around MRF operations

Siting can be difficult because of the necessity for a
warehouse building

Relatively high quality of recyclables therefore
attractive to reuse or reprocessing markets

Savings on transportation costs possible if located near
to large residential areas
Walsall MBC Waste Management Strategy – May 2004
For recycling to be successful, there must be a market for recycled products.
It is generally recognised that residents need to be engaged, so awareness needs to be raised and
support for recycling needs to be offered to householders. It is also felt that businesses
contribute significantly to the amount of waste, and could produce less and recycle more. The
commercial and industrial sector account for a large portion of the waste deposited in licensed
landfill sites.
Composting
Composting is a natural process which can be used to treat organic wastes, such as garden and
kitchen waste. The waste decomposes and can be applied to land as a soil improver and to
enrich nutrient content.
It is estimated that nearly a quarter of all household waste is organic. and can be composted.
Composting may be undertaken in the open, as it needs oxygen but more sophisticated enclosed
plants are also available.
Typical UK composting facilities are well managed and relatively sophisticated plants, which
can process between 3,000 and 100,000 tonnes of material each year and will take
approximately 18 months to construct. There are currently composting facilities available to
Walsall that receive a waste stream consisting of garden waste and green civic amenity site
waste. These facilities would not be suitable for waste that fall within the remit of the Animal
By-products order (e.g. kitchen waste).
Advantages of central composting
Disadvantages of central composting

Useful product – can be sold to offset costs


Can produce odour and litter if badly managed and
potential for liquid (leachate) runoff
A cost effective solution to treat biodegradable waste


Significant overall environmental benefit from
composting and low energy consumption
Concerns have been expressed over the effects of
spores released during the process


Can be a substitute to peat if used as a soil
conditioner
Vermin can be a problem when ‘food’ waste is included
in the composting process


Enclosed plants prevent odour and litter from
decomposing waste
A market for the compost is required to make the
process viable
Energy recovery
After recovering value through recycling and composting, obtaining ‘energy’ from the waste is
the next step in the hierarchy. Many European countries integrate incineration with energy
recovery plants with their composting and recycling programmes. There are several established
methods for producing energy from waste.
Landfill Gas
The degradation processes of landfilled materials releases gases, predominantly methane and
carbon dioxide. The landfill gas can be recovered and utilised as a fuel. As the biodegradable
content of landfill wastes is reduced, (as a result of the Landfill Directive) so the volumes of gas
produced will also reduce. This may result in the recovery of landfill gas becoming more
impractical and uneconomical.
Walsall MBC Waste Management Strategy – May 2004
Incineration with Energy Recovery
Incineration is the most common form of energy recovery from waste in the UK and worldwide. There are currently 13 incinerators operating in the UK, and 16 in various stages of
planning and construction. There are no incinerators currently operating in Walsall, although
incineration plant are operating in the neighbouring Black Country Boroughs of Wolverhampton
and Dudley. Waste is combusted at high temperatures to produce steam from the waste heat,
which is used to generate electricity for sale. Some plants can also supply hot water to provide
district heating for local buildings.
Typical plants in the UK have capacities between 55,000 tonnes to 400,000 tonnes of waste per
year. The majority have been built in partnership with the private sector with contract
commitments for a 20 to 30 year period. A modern incinerator facility can reduce the quantity
of waste needing final disposal by up to 70%.
Common concerns raised with respect to incinerators regard public health impacts and gaseous
emissions. Of particular concern are dioxins and furans, because they are considered to be
harmful to health. Dioxins and furans are produced as a by-product of combustion. Old
incinerators of the 1960’s and 70’s, which were not very tightly regulated, operated at relatively
low temperatures and with little or no air pollution control technology would have operated
under conditions more conducive to dioxin and furan formation. Modern plants have tight
operating conditions, with respect to temperatures and residence times, designed to minimise
the generation of pollutants, including dioxins. In addition air pollution control systems are
required to comply with strict emission standards laid down in EC directives.
Anaerobic Digestion
Anaerobic digestion is another form of treatment of biodegradable waste using bacteria. It takes
place in an enclosed unit and is anaerobic because there is no oxygen present. This process
produces methane gas as the waste decomposes.
The enclosed unit allows emissions to be controlled and the methane gas to be collected. The
gas can then be burnt to produce electricity. Odour can be a problem due to the anaerobic
nature of the process.
Anaerobic digestion has been used for some time in the UK for treating sewage sludge.
Although there are no commercial plants treating solid waste in the UK, there are over 50 plants
operating in Europe. These plants typically range in capacity from 10,000 to 50,000 tonnes of
waste per year. The planning process may take 3 years.
An anaerobic digestion plant with a capacity of approximately 50,000 tonnes of waste per year
will take up an area of approximately 8,000m2 , the highest structure being the digester reactor
vessel, in which the bacteria treats the waste, which may measure 25 m in height.
Gasification and Pyrolysis
Gasification and pyrolysis involve heating the waste in a low oxygen environment, as opposed
to burning it, producing gas, liquid and solid fuels. These technologies are being used outside
the UK, with the first UK demonstration sites currently being planned or developed. It is
anticipated that a number of these demonstration facilities may be come operational in the near
future
Gasification heats waste in a low oxygen environment producing a gas. This can then be burnt
in a gas turbine or gas engine to produce electrical power. In pyrolysis, waste is heated to a high
Walsall MBC Waste Management Strategy – May 2004
temperature with no oxygen resulting in a gas or oil fuel which can be burnt to produce
electricity and/or heat. Many of the proposed technologies require pre-treatment of the waste
stream.
The gasification / pyrolysis plants currently being proposed can treat up to 50,000 tonnes of
waste annually depending on size. The planning process is similar to that required for
incineration.
A gasification/ pyrolysis plant with a capacity of approximately 150,000 tonnes of waste per
year will probably require a site area of approximately 16,000m2, and may have a 8 m tall stack.
Costs are currently difficult to estimate as it is not yet a commercial process, but are expected to
be similar to those for incineration.
Refuse Derived Fuel
The production of Refuse Derived Fuel involves sorting waste to produce fuel pellets. The
pellets can be burnt at a facility on the same site or in a different facility, to generate energy.
This is an established technology in the UK where 5 plants are currently in operation, the closest
to Walsall being in Berkshire.
A Refuse Derived Fuel facility is similar to a MRF, in that it involves sorting municipal waste to
remove the combustible material. The combustible material is either compressed and dried into
fuel pellets if being transported, or sometimes shredded for immediate use. From municipal
waste the process typically recovers 6% metal for recycling and 30-40% combustible material to
be made into fuel pellets. The remainder is sent to landfill.
The current facilities in the UK range in capacity from 50,000 to 100,000 tonnes of waste per
year.
A Refuse Derived Fuel plant with a capacity of approximately 100,000 tonnes of waste per year
will take up an area of approximately 6,000m2 for the fuel production facility. An extra 1000 m2
is required for the combustion facility. The stack height will be similar to that for an
incinerator.
Overview of the energy from waste technologies
Advantages of energy from waste
Disadvantages of energy from waste

Technology is proven in many European Countries


Reduces volume of waste requiring landfill by up to
70%, depending on the technology
Difficulties in identifying appropriate sites due to
community concerns around dioxins and other
pollutants


May be located near to urban centres, reducing
transport impacts
Concerns over possible health effects of emissions,
particularly dioxins


Sophisticated facilities which ensure a high level of
control over the process
Disposal of ash and flue gas treatment residue is
still required


Replaces fossil fuel - a valuable resource which would
otherwise be produced from non renewable sources
like coal, oil and gas. Waste can be kept under a
negative pressure to avoid the escape of dust and
odour
Visual impact due to industrial nature of buildings
and possibly high stacks

Capital intensive

Local transportation impacts from the delivery of
waste and collection of process residues.
Walsall MBC Waste Management Strategy – May 2004
Landfill
Landfill capacity will always be required regardless of the other waste management options
used, to dispose of the waste remaining from other stages of the hierarchy. In the past, landfills
were left unlined, and any pollutants were “managed” through ‘dilution and dispersion’.
Nowadays, landfill sites are predominantly ‘contained’ - the site is lined and capped, and the gas
and leachate produced are collected and treated.
As landfill space is fast becoming filled, it has become increasingly difficult to find new landfill
capacity. Current and forthcoming EU Directives will inhibit future landfill development.
A typical landfill site may accept between 50,000-500,000 tonnes of waste per year. Legislation
requires landfill pollutants including landfill gas and liquid/leachate emissions, to be controlled.
Landfill gas (consisting of 50-60% methane and 35-40% carbon dioxide) may be captured and
burnt to produce energy - see earlier notes.
Regulation and Monitoring of Waste Management Facilities
All waste management processes are closely regulated to ensure that environmental impacts to
air, land and water are minimised. The Environment Agency is the national body responsible for
monitoring and regulation of air, water and land. The Agency issues authorisations to operate
the plant and regulate their operation, and is empowered to close down a plant not meeting
regulations. The monitoring data is placed on public registers which are open for inspection.
Walsall MBC Waste Management Strategy – May 2004