Orkney and Shetland Area Waste Plan

The BPEO Targets throughout this section are strategic targets for the Waste Strategy Area. Local Implementation Plans will set out the detail of the localised delivery systems based on each of the local authority's ability to achieve a proportion of the overall BPEO.

The Orkney and Shetland BPEO for MSW requires the following main developments:

Table 3.1 provides indicative BPEO targets for the tonnage of MSW to be collected for energy recovery, recycling and composting and landfill disposal by 2020 and hence the Landfill Diversion Targets. These targets are indicative only; they are dependent on a number of variables - e.g. changes in waste composition, waste growth rates, etc. Figure 3.1 provides a detailed schematic illustration of the 2020 BPEO waste management system.

(1) All figures rounded to nearest 100 tonnes and refers to the quantity of waste collected for subsequent management by each method.

The following paragraphs (3.2.1 to 3.12) describe in detail the specific actions required to deliver the above BPEO, and the targets and methods used to monitor progress towards its effective delivery.

Prevention of MSW at source encompasses avoiding, minimising and re-using or refurbishing waste. These measures stop materials from entering the waste stream and therefore form a key element of the Orkney and Shetland BPEO. Due to the forecasted increase in the number of households in both island groups, without concerted action the area's annual production of MSW will most probably rise. Sustained annual growth in MSW arisings will incur substantial additional cost, particularly in Orkney and may affect compliance with the Landfill Directive. Failure to control growth in MSW arisings will undermine the BPEO targets.

There is, therefore, a pressing need to ensure the environmental and cost-burden of MSW does not increase during the period of the plan - i.e to prevent MSW production rising above current levels. This will not only deliver environmental benefits by reducing the pollution and energy use associated with waste, it will also generate substantial savings and ensure compliance with the Landfill Directive.

While a specific target to reduce the quantity of MSW generated in the area has not been set, it is the intention of the WSAG that as a minimum MSW arisings in the area will be capped at current levels by 2020. The BPEO targets for recycling and composting, energy recovery and landfill are based on this assumption.

Waste prevention in Orkney and Shetland is currently promoted through schools, community road shows, country shows and public events, and by the provision of advice and information directly to householders. The two local authorities carry out these activities in partnership with a number of community environmental organisations (e.g. Shetland Amenity Trust).

The remoteness of the Orkney and Shetland means that a proactive 'outreach' approach is required to deliver waste prevention effectively. Additional human resources are necessary to facilitate community involvement and participation, to sustain development, and to ensure long-term local support. Public consultation on the AWP showed a high level of local community support for waste reduction activities.

Several projects elsewhere in the UK have demonstrated that with ongoing and accessible practical support, information and advice, based within the community, local householders and businesses, significant in-roads can be made in preventing waste at source and reducing the amount of waste generated. Such projects have important financial as well as environmental benefits, and can help to raise awareness of waste issues across the wider community. It is important that any additional human resources have a strong community (including local business) focus.

Action 2
Develop and seek funding for dedicated human resources to support Waste Prevention activity in each of the Orkney and Shetland island groups.

In working with the National Resource and Waste Forum (NRWF), SEPA is developing a national framework to guide the work of the waste strategy groups and other key players on MSW Prevention. This will include research into best practice both within the UK and abroad. The outputs from this research will be twofold:

The Orkney and Shetland WSAG will draw together the results of this work and, in consultation with local stakeholders, develop a detailed Orkney and Shetland Area Waste Prevention plan. This plan will set targets, identify actions to be undertaken locally and will tie in to national initiatives on education, promotion and emerging policy instruments.

Action 3
Produce a detailed Orkney and Shetland Waste Prevention Plan, informed by SEPA's national framework.

The public sector (central and local government, health etc.) is one of the largest employers in the area, and through its diverse activities generates large quantities of waste. A range of actions, from procurement activities through proper separation of wastes to promoting waste prevention in through staff training can make a contribution. The Orkney and Shetland WSAG has yet to tackle these wide-ranging issues, but members of the group have agreed to take a lead in examining their own activities through preparing and implementing waste-prevention programmes. In the short term, members will develop a range of actions to ensure their respective organisations reduce the amounts of waste they each produce.

Action 4
WSAG members to initiate/develop internal programmes to prevent and minimise waste within their respective organisations.

Home composting is now recognised as a potentially important and cost-effective means of reducing the household component of MSW. This may be particularly relevant in very remote island areas where collection and transportation costs mitigate against segregated kerbside collection.

Home composters are currently subsidised for householders in Shetland by SIC, and in Orkney 'Green Cones' (home digestors) are provided free by OIC to households in remote islands not linked to the mainland. There is, however, considered to be some scope for expanding home composting in both island groups.

Action 5
Carry out study in Orkney to determine efficiency and impact of Green Cones with a view to extending provision to the Mainland.

Action 6
Extend provision of subsidies for home composters in Shetland to less remote areas.

There are a number of existing reuse initiatives in Orkney and Shetland that divert a substantial amount of unwanted goods from landfill or incineration. These are currently operated on a voluntary basis by organisations and partnerships based within the local community. Examples include various charity shops such as Cancer Research, Save The Children, Red Cross and Salvation Army, aid agencies such as Shetland Aid Trust and other local community-led charity shops such as those in Brae, Whalsay and Aith in Shetland. There also materials exchange schemes that utilise local media - e.g. the Shetland material exchange, which advertises on local radio, has a throughput of around 200 items a year.

In both Orkney and Shetland, there is believed to be considerable scope for increasing participation in reuse and refurbishment schemes and it was clear from the AWP consultation processes carried out in both island groups that their is strong community support to develop this. However, any investment in development of such schemes depends ultimately on there being sufficient demand amongst the wider community.

In Shetland, developments in reuse and refurbishment will be carried forward largely through the Shetland Amenity Trust, whereas in Orkney the local authority will lead developments through adaptation of its existing civic amenity sites.

Action 7
Provide waste segregation and reclamation facilities for the public at OIC civic amenity sites.

Action 10
Investigate feasibility of new centralised architectural salvage schemes in Orkney and Shetland.

Orkney and Shetland currently has Scotland's highest household recycling rate, and substantial quantities of commercial waste are also collected every year. However, the Orkney and Shetland BPEO nonetheless requires a significant increase in the quantities of materials collected for recycling and composting including glass and metals in Shetland, and glass, metals, paper and green waste (for composting) in Orkney.

By 2020, an 8.7% increase in the rate of recycling and composting in Orkney will be offset by a 7.7% increase in the rate of energy recovery in Shetland. Shetland will also increase its current rate of MSW recycling by 1.4%. The Orkney and Shetland BPEO for 2020 targets an overall increase in recycling in the area of 40% on current levels.

The principal means of achieving the BPEO recycling targets will be the introduction of segregated kerbside collection systems for households in major towns, and an expansion in the provision of bring facilities in the more remote island areas.

The AWP consultation process demonstrated strong support for recycling and composting, although a number of issues were commonly raised relating to barriers to participation in existing schemes. The WSAG has identified a number of developments required to overcome these barriers, most notably the introduction of household kerbside collections and an expansion of the provision of facilities in more remote areas.

In Shetland, the local authority has developed a number of recycling partnerships with community-based organisations, such as the Shetland Amenity Trust and Decocrete (a private company). These organisations will play a key role in implementing and developing the AWP. In contrast, in Orkney most of the current recycling activity is local authority-led.

Development of large-scale composting in Shetland is thought to be limited by a lack of suitable feedstock, although scope for smaller scale (e.g. community) composting schemes is believed to exist. In Orkney, while a substantial quantity of compostable material (garden waste) from households is currently segregated and collected separately for composting, there is considerable scope to improve the quality and value of the compost for local use. There is good potential for community composting in Orkney as well.

Due to the isolation of the island areas and the need to transport wastes long distances for reprocessing, the benefits of traditional, centralised recycling are limited - most major reprocessing centres are on the mainland, and this incurs excessive costs. However, where value and utility in waste can be exploited locally, the benefits can be substantial. Most of the current recycling and composting in the area can be attributed to local reprocessing activity, and future developments will rely heavily on successfully increasing local reprocessing capacity and developing local end markets.

Action 11
Develop and implement household kerbside collection systems for recyclables in Orkney.

Action 12
Develop and implement household kerbside collection for glass and aluminium in Scalloway and Lerwick, with an initial review after one year.

Action 13
Implement in-vessel technology to compost segregated green waste in Orkney.

Action 14
Introduce aluminium can banks to existing recycling centres in Shetland.

Action 15
Review and expand the provision of recycling centres in remote parts of Orkney and Shetland.

Action 16
Introduce centralised inkjet cartridge recycling schemes in Orkney and Shetland.

The principal means of diverting MSW from landfill in the Orkney and Shetland will continue to be energy recovery for district heating at the existing plant in Lerwick. This facility will continue to recover value from 70% of the area's overall annual MSW arisings.

While both the Orkney and Shetland WSAGs have acknowledged the key role of the existing facilities in delivering BPEO, the groups also recognise the potential benefits of maximising waste prevention, and increasing recycling and composting throughout the area. A key aspect of developing the area's BPEO will, therefore, be to determine the potential for diverting different elements of the MSW stream from the plant without compromising its performance, and/or for substituting these elements with other wastes currently sent to landfill. This work underpins future development and implementation of the AWP. It also has value and implications outwith the Orkney and Shetland area, as many other AWPs are likely to incorporate some level of energy recovery as part of their future development.

Action 18
Carry out research to determine the sensitivity of the Lerwick district heating facility to diverting different elements of MSW, and the scope for substitution of these elements with other wastes currently sent to landfill in the area.

In Shetland, the local authority is participant in a European project investigating and developing islands-based Waste to Energy technology solutions. This should be used as an opportunity to benefit from experience and best practice developments elsewhere in Europe.

Despite the fact that by 2020 over 80% of the area's annual MSW arisings will be recovered in some way, the provision of sufficient forward landfill capacity for MSW is still a vital part of the BPEO. Without development of this capacity waste will need to be exported at considerable economic and environmental cost. The WSAGs recognise that short- to medium-term (10 year) provision of non-hazardous landfill capacity is important for the effective future management of other, non-MSW streams.

The area's largest landfill site at Rova Head on Shetland is nearing capacity - it is expected to close in 2004/5. There is a pressing need to secure alternative arrangements that provide sufficient forward capacity, and mitigate the disbenefits of transporting waste long distances for disposal elsewhere.

As previously noted, the EU Landfill Directive will require increasingly stringent controls on disposal to existing and new landfill sites, requiring pre-treatment of all landfilled wastes and prohibiting the landfill disposal of certain waste types. Of major concern throughout Orkney and Shetland is the potential impact of the Directive on the area's many smaller, private inert sites. It is possible that future controls on disposal of what are currently considered 'inert' wastes will increase the cost of disposal to levels that will marginalize small operators. It is crucial that these developments are fully assessed to determine the implications for disposal facilities and forward capacity in the area.

Action 19
Assess the implications of the Landfill Directive for privately owned inert landfill sites within Orkney and Shetland.

The planning system has a key role to play in identifying and developing sufficient forward landfill capacity in Orkney and Shetland and must take a proactive approach, in partnership with the two WSAGs (see Section 5.6.2 Context for Development Planning, Action 34).