Cabinet Member Report
Meeting or Decision Maker:
Cabinet Member for City Management, Transport and
Environment
Date:
13 December 2013
Classification:
General Release
Title:
Draft Municipal Waste Management Strategy 2016 - 2031
Wards Affected:
All Wards
Key Decision:
Yes
Financial Summary:
There are no direct financial implications associated with this
report. The potential financial implications of the council’s
future waste treatment contracts are however significant.
Report of:
Strategic Director for City Management
The
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1.
EXECUTIVE SUMMARY
1.1
The council’s main waste treatment and disposal contracts are due to expire in
September 2016 and new arrangements need to be put in place from this date. A Draft
Municipal Waste Management Strategy (MWMS) has been produced to inform and
guide the procurement process due to commence in Spring 2014.
1.2
The draft strategy has been developed after significant public consultation resulting in
over 12,500 stakeholder responses and a Strategic Environmental Assessment (SEA)
produced by independent consultants.
1.3
The draft MWMS establishes clear aims, objectives and targets in line with the service
drivers faced. Economic and legislative drivers necessitate an increase in recycling rate
from 13% today to 30% by 2020, 35% by 2025 and 40% by 2031. Failure to change
business and resident behaviours is highly likely to result in increased disposal costs of
£5 - £6 million p.a.
2.
RECOMMENDATION
2.1
That the Cabinet Member for City Management, Transport and Environment approves
the Draft Municipal Waste Management Strategy 2016 – 2031 for formal submission to
the Mayor of London.
2.2
That the Cabinet Member notes the responses to stakeholder consultation carried out by
the Council, as summarised in the Consultation report (Appendix 2).
3.
REASONS FOR DECISION
3.1
The council’s waste disposal contracts are due to expire in 2016 and new arrangements
need to be put in place. The draft MWMS has been developed to inform the forthcoming
procurement exercise and service design.
4.
BACKGROUND, INCLUDING POLICY CONTEXT
4.1
Efficient use of limited public funds
The funding regime to local government has undergone a major shift since the
Government’s Comprehensive Spending Review (CSR) was announced in the autumn
of 2010. The impact has been a cut of 28% to local government core funding in real
terms to be delivered over four years to 2014/15. This substantial funding challenge will
almost certainly continue throughout the term of this strategy and the primary driver for
the waste services to be procured will therefore be to achieve the optimum utilisation
of scarce budgetary resources.
Achieving value for money usually means buying the product or service with the lowest
whole-life costs that is ‘fit for purpose’ and meets the specification. Legislation and
taxation policy is increasingly incentivising the diversion of waste for treatment as a
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resource (Table 1); whether through materials recycling or energy generation. Achieving
value for money is therefore largely consistent with the other objectives set out in the
draft strategy but will remain the primary measure against which procurement decisions
will be determined.
Table 1: Summary information on treatment/disposal gate fees (£ per tonne) (WRAP 2013)
Grade / material / type of
Median
Range
facility
Materials Recovery
All
£9
-£40 to £82
Facility (Recycling)
Contracts starting in 2012 or
-£7
-£40 to £13
later
Organics
Open-air windrow (OAW)
£24
£15 to £45
In-vessel composting (IVC)
£46
£28 to £60
Anaerobic digestion (AD)
£37
£27 to £66
Mechanical
£76
£66 to £82
Biological Treatment
(MBT)
Energy from Waste
Pre-2000 facilities
£58
£39 to £71
(EfW)
Post-2000 facilities
£109
£62 to £126
Landfill
Non hazardous waste gate fee
plus Landfill Tax £80 per
tonne.
£93
£80 to £121
We currently pay half the current going rate for Energy from Waste services shown in
Table 1. If, post 2016, we continue to incinerate the same amounts of residual waste as
today and market rates are maintained the annual disposal cost is highly likely to
increase by £5-6m per annum.
4.2
The Mayor of London’s Waste Management Strategy
The policy context for the strategy development is primarily set by the Mayor of London’s
vision, objectives and targets for waste management in London. The Greater London
Authority Act 1999 (as amended) requires all London waste authorities to notify the
Mayor of new waste contracts before they are advertised and requires waste authorities
to act in general conformity with the with the provisions of the London Environment
Strategy dealing with municipal waste management when undertaking their waste
functions (under s.355 of the GLA Act, as amended by the Localism Act 2011). The
Mayor also has a power of direction (under s.356 of the GLA Act) that he may exercise
for the purposes of implementing his Municipal Waste Management Strategy.
The Mayor’s key targets for the management of London’s municipal waste are:
1. To achieve zero municipal waste direct to landfill by 2025.
2. To reduce the amount of household waste produced by 20% by 2031.
3. To increase London’s capacity to reuse or repair municipal waste.
4. To recycle or compost at least 45 per cent of municipal waste by 2015, 50 per cent
by 2020 and 60 per cent by 2031.
5. To cut London’s greenhouse gas emissions through the management of London’s
municipal waste.
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6. To generate as much energy as practicable from London’s organic and non-recycled
waste in a way that is no more polluting in carbon terms than the energy source it is
replacing. This is estimated to be possible for about 40 per cent of London’s
municipal waste after recycling or composting targets are achieved by 2031.
4.3






Local Drivers/Demographics
Few, if any, areas in the UK have a more complex set of operational constraints than
Westminster and the Council seeks to preserve ‘Clean Streets’ by maintaining
convenient collection services. The council has a unique set of challenges to face in
delivering sustainable waste management services which include:
87% of households are flats, and waste storage space is as a result limited.
121,000 households in 6 square miles, 12,000 businesses served.
Waste is often managed by porters, cleaners, housing management teams (gatekeepers
as we will call them) rather the waste producers.
Resident turnover 30% per annum.
Car ownership is low (37% of households have access) limiting the ability of households
to reuse and recycle larger items of waste,
Visitor and commuter population is over 1 million each week day.
5.
DRAFT MUNICIPAL WASTE MANAGEMENT STRATEGY 2016 - 2031
5.1
The draft strategy (Appendix 1) sets out the waste projections for the period,
assessment of the residual waste treatment and disposal options, and proposals to
increase waste reduction, reuse and recycling/composting rates including associated
stakeholder engagement (education and communications).
5.2
The aims, objectives and targets of the draft strategy are set out below. At its core the
strategy seeks to substantially increase municipal waste recycling rates over the period
from 14% today to 30% by 2020, 35% by 2025 and 40% by 2031.
5.3
Aims
To have zero waste to landfill.
To maximise the management of waste in the top three sections of the waste hierarchy
(reduction, reuse and recycling).
3. To achieve conformity with the Waste Strategy for England 2007 and the London
Municipal Waste Management Strategy (2011) where practicable and cost effective to
do so.
1.
2.
5.4
Objectives
The Council will continue to promote waste reduction initiatives particularly those
relating to food waste.
2. The Council will promote and facilitate initiatives that maximise the reuse of goods and
materials before they enter the waste stream.
1.
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3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
5.5
1.
2.
3.
4.
5.
6.
7.
8.
9.
The Council will continue to develop partnerships with organisations (particularly local
community groups and others in the third sector) to stimulate higher reduction, reuse
and recycling rates.
The Council will continue to implement best practice in waste awareness and education
The Council will, in conjunction with their collection and processing contractors,
continuously and pro-actively review the range of materials, collected for recycling and
introduce additional materials where possible.
The Council will develop recycling services that encourage high participation.
The Council will seek to maximise the quality of the recyclable material collected.
The Council will expand ‘on the go’ recycling services for street litter.
The Council will continue to investigate opportunities to open a Reuse and Recycling
Centre.
The Council will expand commercial waste recycling services.
The Council will continue take appropriate enforcement action against those
businesses, visitors and residents who seek to dispose of their wastes irresponsibly.
The Council will develop partnerships with neighbouring boroughs to increase the
efficiency and effectiveness of services.
The Council will seek to treat as much waste within Greater London as possible, where
cost effective to do so.
The Council will seek to prioritise high performing, low emission, modern, sustainable
technologies and operations that achieve value for money.
The Council will seek to send no residual waste to landfill.
The Council will develop plans for the responsible management of specialist waste
streams.
Targets
To achieve zero growth in the amount of waste produced by each household per year
by 2020.
To reduce the amount of household waste not re-used, recycled or composted by the
residents of Westminster to 225 kg per capita by 2020.
To maximize the reuse of municipal waste.
To achieve a municipal waste recycling rate of 30% by 2020, 35% by 2025 and 40% by
2031.
To encourage all commercial organizations in Westminster to recycle their waste.
To maximize diversion of biodegradable municipal waste from landfill to meet national
and regional targets.
To minimize the environmental impact of managing Westminster’s municipal waste.
To meet the national recovery targets of 67% by 2015 and 75% by 2020.
To maximize the treatment of waste within Greater London where practical to do so.
6.
BUSINESS PLAN IMPLICATIONS
6.1
The Strategy is in line with the Council’s objective “to make Westminster the foremost
world class sustainable city”.
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7.
FINANCIAL IMPLICATIONS
7.1
There are no direct financial implications associated with this report. The potential
financial implications of the council’s future waste treatment contracts are however very
significant. If current operations and behaviours continue the annual disposal cost is
highly likely to increase by £5-6m per annum from 2017.
8.
LEGAL IMPLICATIONS
8.1
There are no direct legal implications associated with this report. Before formal adoption
by the council the draft strategy is to be presented to the Mayor of London for approval
as required by section 355 of the Greater London Authority Act 1999. Procurement of
new waste disposal contracts will be in accordance with the council’s Procurement Code
and EU procurement legislation.
9.
STAFFING IMPLICATIONS
9.1
There are no staffing implications associated with this report.
10.
RISK MANAGEMENT IMPLICATIONS
10.1
There are no direct risk management implications associated with this report.
However, failure to adopt the strategy and any subsequent delay in procurement
activities could have an adverse financial impact.
11.
IMPACT ON THE ENVIRONMENT
11.1
As the Strategic Environmental Assessment of the draft strategy options
(Supplementary Report 1) concludes the implementation of the strategy would
have a net positive impact on the environment when compared to current
operations.
12.
COMMUNICATION IMPLICATIONS
12.1
There are no direct communications implications associated with this report.
13.
CONCLUSIONS AND REASONS FOR THE PROPOSED DECISION
13.1
It is recommended that the Cabinet Member for City Management, Transport and
Environment approve the Draft Municipal Waste Management Strategy 2016 – 2031 for
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submission to the Mayor of London. Once formally adopted the MWMS will inform the
procurement of new waste disposal arrangements and future service design.
If you have any queries about this Report or wish to inspect any of the Background
Papers please contact:
Phil Robson, Waste and Recycling Manager, probson@westminster.gov.uk, 0207641 7026
APPENDICES
1. Draft Municipal Waste Management Strategy 2016 – 2031
2. Consultation Report for Municipal Waste Management Strategy 2016 - 2031
3. Strategic Environmental Assessment for Municipal Waste Management Strategy 2016 –
2031.
BACKGROUND PAPERS
1. Environment Policy and Scrutiny Committee Paper - Developing a New Waste
Disposal Strategy – 20th September 2012
2. Environment Policy and Scrutiny Committee Paper Draft Waste Strategy and
Consultation Responses – 23rd September 2013
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For completion by the Cabinet Member for City Management, Transport and Environment
Declaration of Interest
I have <no interest to declare / to declare an interest> in respect of this report
Signed:
Date:
NAME:
State nature of interest if any …………………………………………………………..……
…………………………………………………………………………………………………..
(N.B: If you have an interest you should seek advice as to whether it is appropriate to make a
decision in relation to this matter)
For the reasons set out above, I agree the recommendation(s) in the report entitled
Draft Municipal Waste Management Strategy 2016 - 2031 and reject any alternative options
which are referred to but not recommended.
Signed ………………………………………………
Cabinet Member for City Management, Transport and Environment
Date …………………………………………………
If you have any additional comment which you would want actioned in connection with your
decision you should discuss this with the report author and then set out your comment below
before the report and this pro-forma is returned to the Secretariat for processing.
Additional comment: …………………………………….……………………………………
……………………………………………………………………..……………………………
If you do not wish to approve the recommendations, or wish to make an alternative decision, it is
important that you consult the report author, the Head of Legal and Democratic Services, Chief
Operating Officer and, if there are resources implications, the Director of Human Resources (or
their representatives) so that (1) you can be made aware of any further relevant considerations
that you should take into account before making the decision and (2) your reasons for the
decision can be properly identified and recorded, as required by law.
Note to Cabinet Member: Your decision will now be published and copied to the Members of
the relevant Policy & Scrutiny Committee. If the decision falls within the criteria for call-in, it will
not be implemented until five working days have elapsed from publication to allow the Policy
and Scrutiny Committee to decide whether it wishes to call the matter in.
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