Executive Summary

Introduction and Background
This Area Waste Plan (AWP) has been developed by the joint efforts of Orkney and Shetland Waste Strategy Area Groups (WSAG) to provide a strategic framework for improved waste management across the two local authority areas. The key aim of the plan is to:

'Contribute to the sustainable development of the Orkney and Shetland Area by developing waste management systems that will control waste generation, reduce the environmental impacts of waste production, improve resource efficiency, stimulate investment and maximise the economic opportunities arising from waste'.

The principle of sustainable development is now fully embedded at all levels of government thinking and policy-making. The Scottish Executive recognises that effective resource use is a crucial element of sustainable development and therefore set the following objective within the Spending Proposals for 2003-6:

'Ensure progress towards sustainable waste management of Scotland's waste and achievement of EU landfill reduction targets by 2010, 2013 and 2020'.

The Executive overall national target set to achieve this aims to:

• Increase the amount of waste collected by the local authorities that is recycled or composted to 25% by 2006.

This plan has five main parts:

The plan primarily focuses on MSW - i.e. waste produced by households and commercial premises that is collected and managed by the local authorities. It sets out the strategy for implementing the BPEO for these wastes, as agreed by the two WSAGs in February 2002 and reported in the Orkney and Shetland Draft AWP, July 2002.

Information and data on non-MSW - i.e. industrial and other waste - are currently insufficient to conduct a through analysis to identify BPEO(s). Moreover, as there is no single agency responsible for control of these wastes, developing and implementing BPEO is necessarily even more complex. However, a broad framework for developing BPEO(s) for non-MSW is presented in Section 4.3, and the Orkney and Shetland WSAGs will continue to identify areas where management of these wastes can be improved.

Orkney and Shetland BPEO for MSW - rationale and summary
Two extensive public consultation processes were carried out in each island group as part of the BPEO decision-making process. The first sought local views on a number of strategic options relevant to each area, and the second on the Draft AWP itself. The Draft plan was then formulated jointly by the two WSAGs. In Orkney, three strategic options were based on continued joint working through the energy recovery plant (status quo); continued joint working but with additional increased waste prevention and recycling; and development of a new local landfill for mixed waste (to avoid exporting waste to Shetland). The majority of respondents were in favour of the second option. In Shetland, the options proposed took the form of a range of potential waste prevention, recycling and composting measures that could operate in parallel with the existing energy recovery plant. There was strong support for all those measures that would prevent waste at source, and increase the proportion composted and recycled, without threatening the performance and viability of the existing district heating scheme. The consultation responses concurred well with the views of the two WSAGs.

The other key finding in both island groups, which again concurred with the views of the WSAGs, was the desire to recycle more, both through segregated kerbside collections and improved access to bring facilities in remote areas. This was particularly the case in Orkney, where there are additional economic benefits associated with reducing exports of waste.

The BPEO decision-making process was necessarily based on maintaining the existing energy recovery facility in Lerwick. Both WSAGs recognise that this facility has a very important and highly valued local socio-economic function. The outcomes of the BPEO process were therefore required to maintain this function, while maximising the prevention of waste and recycling as far as practicably possible and economically justifiable.

The geographical fragmentation and remoteness of the islands, and their highly dispersed human populations, were also critical factors in determining the BPEO. These factors mean that waste collection and transport, for kerbside recycling in particular, are inevitably less practicable and more costly than elsewhere, and it is difficult to justify such schemes in the most remote areas on either economic or environmental grounds. For this reason kerbside recycling collections have been targeted at the more densely populated areas.

The Orkney and Shetland WSAGs have considered in detail SEPA's "Guidelines and approach to thermal treatment and energy from waste", and have agreed that source-segregation of recyclable wastes should form a key element of the BPEO. The islands have a strong track record of resource efficiency and the BPEO for MSW is intended to build on this. However, for the reasons outlined above, it is unrealistic to target similar levels of recycling as would be expected on the mainland.

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

• Preventing MSW at source through education and awareness-raising, the provision of practical community support, and promoting home composting
  

• Introducing source-segregated kerbside recycling collections for the major towns in both island groups
  

• Expanding the provision of recycling bring facilities in remote areas
  

• Continuing to recover energy from the majority of the area's MSW via the existing Lerwick Energy-from-Waste plant
  

• In Shetland, reducing the amount of MSW sent to landfill, and increasing the amount recovered for energy
  

• In Orkney, reducing the amount of MSW exported to Shetland for energy recovery and increasing the amount recycled and composted locally
  

• Developing local reprocessing capacity and local recycled product markets for glass and paper and (in Orkney) green waste
  

• Disposing of reduced quantities of residual MSW to landfill.

The BPEO sets specific targets for waste prevention, energy recovery, materials recycling and landfill disposal of residual wastes. Delivery of these targets will result in an important shift from the current waste management mix - there will be less landfill disposal and more recycling of MSW in the area. The shift from the current position is illustrated in Exec. Summ. Figure 1 over.

Exec. Summ. Figure 1 - Orkney and Shetland % Targets - 2001/02 and 2020 (BPEO)

The quantity of waste produced in the isles is increasing, and the priority is therefore to prevent waste occurring at source. The BPEO targets assume the quantity of waste produced in the islands can be capped at current levels by 2020.

As Figure 1 illustrates, the main development proposed by the BPEO for MSW is a shift away from landfill and increased recycling. Most of this shift will be targeted at the household waste stream, and the percentage increase here will be even greater - from around 13% in 2001/02 to 18% in 2020. This is an ambitious target for such a remote and dispersed area that will require development of greater reprocessing capacity within the area. It is also a process that will require careful management to maintain the efficiency of the existing energy recovery plant.

Kerbside collections of glass and aluminium in Lerwick will require levels of public participation that will deliver at least 50% capture of the total quantities available, and in Orkney an additional 1000 tonnes of MSW will be recycled by various means (this target is based on current estimates of the extent to which imports of waste from Orkney for energy recovery can be reduced without adversely affecting the performance or efficiency of the existing plant).

All the targets in the BPEO for MSW will be reviewed on an on-going basis, and in particular in light of key research into the sensitivity of the existing energy recovery plant (e.g. it may be possible to recycle more MSW and substitute this diverted waste with other local non-MSW feedstocks).

Implementing the Orkney and Shetland AWP
Taking forward the Orkney and Shetland AWP will require partnership working at a range of levels and with a number of stakeholders. Consequently, it is essential that commitment is given by all stakeholders to both the principles behind the plan and the range of actions promoted. Annex 2 describes a detailed Action Plan to ensure the AWP is implemented effectively. It is clear from this that implementation of the AWP may result in an increase in cost for some aspects of managing the area's waste. Increasing levels of funding will be required for local authorities, and waste producers will in some instances be required to pay more, particularly for waste that continues to go to landfill. The land use planning system must deliver the required planning permissions, and this will challenge officials and politicians alike. However, it is essential that the necessary funding is secured, suitable sites identified, and planning permissions granted.

A vital step in the process is the development of Implementation Plans for each of the two local authority areas. An integrated approach should be taken between the two WSAGs, working in partnership to ensure development of the AWP is coherent and prioritised, and that funding is allocated effectively.

It is the responsibility of everyone living and working in Orkney and Shetland to make this plan work. Some can make a bigger contribution than others, but every contribution will make a difference.

Orkney and Shetland AWP Process