Memorandum submitted by the Greater Manchester
Waste Disposal Authority (Waste 11)
Greater Manchester Waste Disposal Authority
(GMWDA) welcomes the opportunity to contribute to the work of
the Environment, Food and Rural Affairs (EFRA) Committee. It has
pleasure in submitting below the GMWDA submission, which follows
the EFRA published issues, to the inquiry on the Waste Strategy
for England 2007.
1. EXECUTIVE
SUMMARY
1.1 GMWDA's strategy fits well with the
national strategy and will contribute significantly to its implementation
for municipal waste in the North West region. Our investment will
exceed the new national recycling and composting target for 2015—our
prediction is for over 50% recycling and composting, significantly
more than the 45% national target and meeting the 2020 target
5 years early.
1.2 However, the Authority wishes to stress that
municipal waste makes up a relatively small proportion of the
total waste arisings nationally. Its response below outlines the
need for greater collaborative working across all the waste sectors
with a stronger steer and support mechanisms from Government.
The various Government sponsored projects undertaken by organisations
such as WRAP and the BREW programme are very valuable but there
is more opportunity for work between and across the sectors, especially
on a regional and sub regional basis.
1.3 GMWDA believes that there is a need
to revisit definitions, interpretation and classifications of
waste which pose a barrier standing in the way between the public
sector and other sectors.
1.4 Finally, and most importantly it is
clear that current waste infrastructure is totally inadequate
for the implementation of the waste strategy—this is the
case overall nationally and regional and sub-regional scenarios.
There remain risks relating to achieving timely planning approvals
which may cause delays resulting in LATS penalties. Effective
communications are needed at a local and national level. Continued
and prominent Government promotional activity for the required
infrastructure is essential.
2. GREATER MANCHESTER
CONTEXT
2.1 GMWDA, as the largest Waste Disposal
Authority in the UK, is responsible for managing around 1.4 million
tonnes of municipal waste arising from the greater Manchester
conurbation. This extends over Bolton, Bury, Manchester, Oldham,
Rochdale Salford, Stockport, Tameside and Trafford metropolitan
authorities. The tenth Greater Manchester authority of Wigan is
a disposal authority in its own right.
2.2 GMWDA, in partnership with its constituent
authorities, is proud to have made significant progress towards
the implementation of a waste management strategy of pushing local
waste up the waste hierarchy—waste reduction, re-use and
recycling. Its recycling rate has increased fivefold in the last
few years from only 5% in 2001-02 to almost 27% in 2006-07. It
has made rapid progress in developing and is now in the final
stages of implementing a waste management PFI contract which is
acknowledged to be the largest of its kind in Western Europe.
This proposes new "state of the art" technology and
processes to help GMWDA achieve its recycling-led waste strategy
and will recover energy from waste that cannot be recycled.
3. EFRA QUESTIONS
3.1.1 How policies proposed by the Waste Strategy
will be implemented and the roles of those responsible for the
production and disposal of different classes of waste-including
industrial, business and household waste. Localisation as opposed
to centralisation of waste management.
3.1.2 GMWDA believes that the implementation
of the waste strategy for the municipal sector has a greater chance
of achievement since there has been greater Government focus and
support for this sector. However, this makes up a relatively small
proportion of the overall waste arisings and it is this Authority's
view that more cross sector activity is needed.
3.1.3 However, definitions, interpretation and
classifications of waste pose a barrier standing in the way between
the public sector and other sectors.
3.1.4 Waste from businesses, charged for and
collected by private contractors, has driven many organisations
to become more focused upon waste prevention and encourages better
waste management practice towards waste reduction, reuse and recycling.
There has been a considerable change in attitudes and behaviours
to waste in recent years, particularly in regard to reducing waste
and recycling. Although the intent is stated within the Waste
Strategy for England 2007, insufficient progress has been made
in facilitating businesses, particularly SMEs to reduce, reuse
and recycle their waste.
3.1.5 This Authority feels that, rather
than seek to more narrowly define the associated regulations it
would be opportune to revisit them in the current climate and
endeavours for the implementation of the Waste Strategy for England
2007. It is time for all organisations to be encouraged to take
responsibility for their waste and this should be reflected in
the ability for councils to make the appropriate charges.
3.1.5 There is ongoing debate about the
types of chargeable household waste (schools, universities, nursing
homes, charity shops run as businesses etc.) resulting from the
means of interpretation of the Environmental Protection Act 1990
and the Controlled Waste Regulations 1992. This will only encourage
organisations to be overly finance rather than sustainability
driven.
3.1.6 GMWDA, as the largest Waste Disposal
Authority in the UK, is very keen to enter into this debate and
has welcomed any opportunity to pursue further discussions with
ministers and DEFRA officials to try to help resolve these issues.
3.2.1 The role for and implementation of regulations,
and their enforcement.
3.2.2 The Authority's submission does not
seek to go into detail in relation to the role for regulations.
GMWDA supports clear regulations supported by effective enforcement.
It expects that any charges should be proportional to the level
of regulatory and enforcement work carried out.
3.3.1 The classification of waste.
3.3.2 GMWDA's is of the view that classification
of waste should be clear and consistent. Views are given under
3.3.1 regarding the various classes of waste and the relevant
waste producing sectors.
3.4.1 The proposals for financial incentives
to increase household waste prevention and recycling.
3.4.2 GMWDA has welcomed the proposals by Government
for restrictions on local authorities to be lifted through the
introduction of a power to incentivise householders. However,
it has expressed a number of concerns about the proposals put
forward and the way in which schemes might work effectively. By
giving the opportunity for many and varied schemes (albeit introducing
local solutions) too much diversity could lead to schemes having
detrimental effects upon each other or upon other authorities
which do not seek to exercise such a power.
3.4.3 A power for financial incentives may assist
authorities in achieving targets, but in limited situations. We
have grave concerns about the potential administrative costs.
We are dubious of the assertion that schemes could and should
be cost neutral. Administrative costs may outweigh any benefits.
3.4.4 There is a need for householders to
be aware of the actual cost of their waste management service.
Even though many authorities communicate these costs through the
council tax demand and information research has shown that many
residents think that waste management costs are in the order of
£500 pa. Without a true understanding of the costs, residents
will be disappointed to learn how much incentive they might receive.
3.4.5 The Greater Manchester authorities
are in the transition period of implementing changes to collection
arrangements and at HWRCs (Civic Amenity sites) which are designed
to improve recycling performance. The first phases of these changes
have enabled recycling rates across the sub-region to more than
quadruple. Government funding has enabled the schemes to be implemented
and further funding from Government would ensure further boosted
recycling rates.
3.5.1 The role of composting.
3.5.2 Composting forms an important part
of the future for waste management and this is very true for implementing
the GMWDA strategy, achieving the challenging recycling &
composting target (50% minimum) and diverting waste from landfill.
3.5.3 The key role of composting for GMWDA is
putting in place the infrastructure. In vessel composters (4 in
total) will be provided to take combined green (garden) waste
and food waste from households as collected by the metropolitan
districts (as waste collection authorities). It is also essential
to secure appropriate markets for the resulting material.
3.5.4 Large scale infrastructure, although
key for large quantities of waste, is not the only role for composting.
The first thought should be for waste reduction, keeping materials
out of the waste stream, encouraging ownership and responsibility
for waste. This can be achieved through households home composting
and community composting schemes.
3.6.1 The Government's approach to waste minimisation,
for example consideration of responsible packaging, including
examination of the different materials used and the potential
for reusable packaging and return schemes.
3.6.2 The Waste Strategy for England 2007
should be applauded for placing its stronger emphasis upon waste
prevention (minimisation). Our Municipal Waste Management Strategy
for Greater Manchester already takes waste prevention forward
for the future. The strategy is supported by action plans for
waste minimisation, waste awareness and education and the future
contract identifies the means of their implementation through
delivery plans.
3.6.3 The Authority understands the need to work
towards behavioural change and is employing specialist advisors
to help influence residents and communities. But there needs to
be an overall thrust beyond the householder. At GMWDA we are developing
an Authority vision which takes into account our relationship,
engagement and sphere of influence over other sectors:
— Engaging with the retail sector;
— Engaging with businesses, commerce
and industry;
— Engaging better and more comprehensively
with the community/voluntary sector;
— Helping secure funding for waste
prevention and recycling in all sectors;
— Further engagement with the planning
authorities;
— Taking a strong regional and national
lead; and
— Ensuring continued increased cohesion
at the collection/ disposal interface
3.6.4 We have already made representation
to DEFRA to offer assistance in achieving a more collaborative
approach, provided that the issues and barriers (identified under
Issue 3.1.1) can be addressed.
3.6.5 The example of responsible packaging
is an area where greater collaboration can take place between
producers, users and managers of waste. The various Government
sponsored projects undertaken by organisations such as WRAP and
the BREW programme are very valuable but there is more opportunity
for work between and across the sectors, especially on a regional
and sub regional basis.
3.7.1 The potential for the proposals in the
Waste Strategy to tackle the UK's contribution to climate change,
in particular through the reduction of methane emissions from
landfill.
3.7.2 The Government is to commended for
the way in which key environmental documents published earlier
in the year—the Waste Strategy for England 2007, the Planning
White Paper and the Energy White Paper—were referenced to
the overarching need to tackle climate change and reduce carbon
dioxide emissions.
3.7.3 This Authority has risen to the challenge
and recognised the influence it can have across the greater Manchester
sub-region as a service provider, an estate/asset manager and
as a community leader. It has signed the Nottingham Declaration
on Climate Change and is developing a Climate Change Strategy
alongside its vision.
3.7.4 In implementing its waste strategy
GMWDA plans to slash use of landfill from 65% to 15%. This will
come about by significantly increased recycling, in-vessel composting
and the use of Mechanical Biological Treatment. The biological
treatment will be through Anaerobic Digestion which will remove
methane to produce green electricity. The plants will also produce
a stabilised fuel to be transported (by rail) to a new power generation
facility which will supply both heat and power. This will reduce
the demand for fossil fuel and its environmental consequences.
3.8.1 The promotion of anaerobic digestion
for agricultural and food waste.
3.8.2 GMWDA is delighted that the national
strategy is encouraging the use of anaerobic digestion. As part
of the proposed MBT (Mechanical Biological Treatment) plant outlined
above this process is the key to divert Greater Manchester's waste
from landfill.
3.9.1 The adequacy of the existing infrastructure,
such as energy from waste facilities with heat recovery; the UK's
capacity to process materials collected for recycling; and the
potential for Government action to encourage the most efficient
novel technologies.
3.9.2 It is clear that current waste infrastructure
is totally inadequate for the implementation of the waste strategy—this
is the case overall nationally and the local picture is exemplified
by the GMWDA position. Here in Greater Manchester our Municipal
Waste Strategy is to be implemented by £330 million of state
of the art investment, supported by £100 million PFI credits.
3.9.3 In this way, GMWDA is well advanced in
its proposals for the provision of new infrastructure and its
means of investment and hence mitigate potential LATS penalties.
However, there remain risks relating to planning which may cause
delays resulting in penalties. Effective communications are needed
at a local and national level. Continued and prominent Government
promotional activity for the required infrastructure is essential.
Greater Manchester Waste Disposal Authority
October 2007
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